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Canada’s national strategy to ensure the future of Atlantic salmon 2024-2036

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Foreword

Minister’s message: Publication of the National Strategy to ensure the future of Atlantic Salmon

I am pleased to present the publication of the National Strategy to Ensure the Future of Atlantic Salmon. The protection of this vital and iconic species, with its deep cultural and economic significance to Atlantic Canada and Québec, is a commitment for our government.

Atlantic salmon has long been an integral part of Canada's history and identity, and it is with great pride that we present this strategy, developed through collaborative efforts with Indigenous organizations, provincial governments, grassroots organizations, and other key stakeholders.

This strategy aims to support a healthy and sustainable future for Atlantic salmon and the ecosystems upon which they depend. It is the result of hard work, dedication, and shared commitment to preserving this important species for generations to come.

I would like to extend my sincere gratitude to everyone who contributed to the development of this strategy. The process of collaboration and reconciliation has been central to our efforts, reflecting the importance of working together to protect Atlantic salmon and the environment. Your input has been crucial in shaping a strategy that balances the need for conservation with the perspectives and knowledge of all parties involved.

The challenges facing Atlantic salmon are significant, particularly in the face of climate change. Rising water temperatures, lower water levels, and more frequent extreme weather events are all contributing to the decline of salmon populations. The impacts of these changes are felt deeply by Indigenous communities, and it is essential that Indigenous knowledge and perspectives continue to play a central role in our conservation efforts.

The protection and recovery of Atlantic salmon is critical not only to the health of our ecosystems but also to the social and economic well-being of many communities across the Atlantic Canada and Québec.

We are committed to working with Indigenous communities, provinces, stewardship organizations, and all partners dedicated to managing and stewarding Atlantic salmon. Together, we will create a healthier, more sustainable future for this important species.

Thank you once again to all who have contributed to this important work. I look forward to continuing our collaboration and seeing the positive impacts of this strategy on the conservation of Atlantic salmon.

The Honourable Diane Lebouthillier
Minister of Fisheries, Oceans, and the Canadian Coast Guard

Executive summary

Atlantic salmon is an iconic species in Atlantic Canada and Quebec. Central to the cultural identities of Indigenous peoples, crucial to the health of the ecosystem, and prized by recreational anglers, Atlantic salmon is woven into the fabric of many East coast communities. Atlantic salmon is also a species in decline, and Fisheries and Oceans Canada (DFO) has heard a growing sense of urgency and concern from Indigenous peoples, provincial governments, and a broad range of stakeholders about the state of Canada’s Atlantic salmon.

The first-ever national strategy for Atlantic salmon sets out a vision for the future of this species across its Canadian range. Paramount to this vision is creating space for the Indigenous knowledge of Atlantic salmon accumulated since time immemorial to be shared, respected, and meaningfully integrated. Underlying all areas of this strategy is a commitment to work collaboratively to create the conditions necessary for Atlantic salmon to thrive. Through its vision, strategic outcomes, and outputs, the strategy serves as a guide for Atlantic salmon restoration, science, policy, and management, and is an important accountability document for Canadians as to how the species is stewarded.

DFO did not develop this strategy alone; discussion and collaboration with Indigenous peoples and the Atlantic salmon community was instrumental in shaping the strategy’s vision, to create the conditions necessary for Atlantic salmon and the Atlantic salmon community to thrive. Taking into consideration the knowledge shared through ongoing conversations with Indigenous peoples, extensive feedback received over the course of nearly two years of engagement, and the expertise gained over decades of study, four strategic outcomes have been identified to guide the future of Atlantic salmon activities for the next twelve years:

Lastly, the strategy sets a path for how the Atlantic salmon community will be kept up to date through progress reporting on its implementation over the 12-year cycle (approximately two to three salmon generations) and how all those with Rights, accountability, or a commitment to salmon can get involved with its delivery.

1.0 Introduction

In 2018, Fisheries and Oceans Canada (DFO) revised the Wild Atlantic Salmon Conservation Policy (the Policy) to provide a framework for the Government of Canada to meet its objectives for the conservation of Atlantic salmon. The goal of the Policy is to “restore and maintain healthy wild Atlantic salmon populations”. Canada’s national strategy to ensure the future of Atlantic salmon (the Strategy) is intended to create the conditions necessary for this goal to be achieved over the next 12 years and beyond. To do so, the Strategy will rely on the experience, knowledge, and dedication of Indigenous peoples, provincial governments, and stakeholders in the Atlantic salmon community. It is intended to be adopted and implemented by all.

The Strategy emphasizes a thoughtful, selective approach to intervention that commits us to the achievement of our vision, while also compelling us to be strategic about where and how we act to ensure the greatest impact. In some rivers, due to environmental changes or other challenges, it may not be feasible to restore salmon populations. By focusing  efforts in the areas where actions can be most impactful and where the benefits of connecting people and salmon are the greatest, the salmon community will ensure a future for this species in Canada. This balanced approach reflects both  optimism and dedication to helping salmon, while acknowledging the significant challenges they face in an ever-changing world.

In light of evolving relationships between Indigenous peoples and the Government of Canada, as well as "what we heard” through engagement with Indigenous peoples, a review of the Policy itself is also proposed to better reflect the needs and expectations of Indigenous peoples in the context of Reconciliation, including the United Declaration of the Rights of Indigenous Peoples Act and the United Declaration of the Rights of Indigenous Peoples Act Action plan 2023-2028.

Salmon in crisis

Atlantic salmon fisheries in the North Atlantic peaked in the 1970s and abundance has been declining in all areas since, including in parts of Canada. Population declines have been most significant in the southern range of the species where salmon populations of the Bay of Fundy and the Atlantic coast of Nova Scotia were assessed as endangered by the Committee on the Status of Endangered Wildlife Species in Canada (COSEWIC) in 2010. Many salmon populations of the southern Gulf of St. Lawrence have declined below a critical level over the past decade where serious harm to the stock is likely occurring. For example, in the Miramichi River, the annual abundances of the past decade have frequently been at record lows, particularly for the earlier maturing one-sea-winter salmon. Salmon populations in the southern regions are impacted by rapidly changing marine, estuarine and freshwater environments, and by anthropogenic stressors, including land-use and the spread of invasive species.

In addition, stakeholders have expressed concern about predation which occurs throughout the salmon life cycle, both in freshwater and at sea. Migrating smolts face predation from species such as striped bass and cormorants, while adult salmon may be preyed on by seals or other larger predators. Though natural, predation can exacerbate challenges associated to human activities, climate or ecosystem shifts for Atlantic salmon throughout its range.

Atlantic salmon spawn and grow to smolts in freshwater; consequently, local and regional actions to protect and recover their essential freshwater habitat and ecosystem components are key to providing time and opportunities for salmon to adapt to the rapid ecosystem changes driven by accelerating climate warming.

2.0 Significance of Atlantic salmon

Atlantic salmon is an iconic species in Atlantic Canada and Quebec that has held cultural and spiritual significance to Indigenous peoples since time immemorial, and has been an important part of many Canadians’ lives and livelihoods for generations. Salmon fisheries continue to be an important expression of people’s connection to the species. Over forty Indigenous communities fish Atlantic salmon for food, social and ceremonial (FSC) purposes. In central and coastal Labrador, subsistence fisheries for Atlantic salmon provide an important source of food for local communities. Recreational fishing for Atlantic salmon is a popular activity for residents and visitors alike and is important to local economies where it occurs. A Gardner-Pinfold study conducted in 2022 estimates the GDP value of Atlantic salmon recreational fishery to be $218M.Footnote 1

However, the social-cultural and social-ecological values of Atlantic salmon far exceed its economic value — wherever salmon and people coexist, the connection is deep. As such, our relationships with salmon and its importance in creating a sense of connection to nature is frequently expressed in science, literature and the arts. Our interconnectedness with Atlantic salmon is why the species’ future matters to people.

3.0 Management context

3.1 Indigenous Rights and Reconciliation

The diverse cultural relationships of Indigenous peoples with Atlantic salmon are of the highest importance to many Indigenous peoples across Atlantic Canada and Quebec. Indigenous peoples hold rights to access Atlantic salmon for FSC purposes and have told the Department through engagement that their ability to exercise their rights has been impacted by the continued decline of Atlantic salmon populations across much of its range.

The United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) was adopted in 2007 and describes a comprehensive international human rights instruments on the rights and the minimum standards for the survival, dignity, and well-being of Indigenous people around the world. In Canada, the United Nations Declaration on the Rights of Indigenous People Act (UNDA) came into effect in 2021, to advance the implementation of UNDRIP and to ensure our laws in Canada are consistent with it. To achieve the objectives set forward by the this Act, Canada released its UNDA Action plan 2023-2028 providing the roadmap for its implementation.

The development and implementation of the national strategy for Atlantic salmon will be guided by Principles respecting the Government of Canada’s Relationship with Indigenous peoples. These Principles are rooted in section 35 of the Constitution, recognizing Indigenous and treaty rights, and guided by UNDA. The Government of Canada is committed to achieve reconciliation with Indigenous peoples, recognizing the rights and acknowledging the wrongs of the past, knowing the true history, and working together to implement Indigenous rights.

3.2 Atlantic salmon fisheries

Responsibility for the protection and management of Atlantic salmon is shared across multiple jurisdictions and levels of government. The federal Minister of Fisheries, Oceans and the Canadian Coast Guard has the authority and tools under federal legislation (i.e., Fisheries Act, Species at Risk Act and Oceans Act) to manage Atlantic salmon and protect its habitat, including the management of FSC fisheries and some recreational fisheries. The Parks Canada Agency assumes management authority where Atlantic salmon occur within its boundaries, under the Species at Risk Act and the Canada National Parks Act.

Provincial governments also have powers with respect to the management of Atlantic salmon and their habitat in inland waters. Fisheries management regimes vary between provinces. In Nova Scotia, New Brunswick, and Prince Edward Island, the provincial governments issue licenses for recreational angling and provide support for science, restoration, and stewardship activities. In New Brunswick and Nova Scotia, further roles and responsibilities with respect to the conservation and management of Atlantic salmon are specified for each province and the federal government in their respective Memorandums of Understanding. In Newfoundland and Labrador, DFO manages recreational fisheries and the Resident subsistence fishery in Labrador while the province is responsible for access to fisheries, and both DFO and the province have a shared responsibility over the fisheries in non-tidal waters. Further consideration to the operation of recreational fishing camps is given in the Labrador Inuit Land Claims Agreement. In Quebec, the management of migratory fish, including Atlantic salmon, was delegated to the province in 1922.

In addressing the impact of human activities on fish and their habitats, provinces contribute essential regulatory oversight for actions like watercourse alterations, mining, forestry, and agriculture, working in tandem with the Fisheries Act protection provisions led by DFO. In addition to management activities directed at Atlantic salmon fisheries, there are also many DFO programs and activities relevant to Atlantic salmon that are supported by provincial governments and others, including the Species at Risk Program, Fish and Fish Habitat Protection Program, Aquatic Invasive Species program, among others.

3.3 Species at risk

Under Canada’s Species at Risk Act (SARA), the Minister of Fisheries and Oceans Canada and the Canadian Coast Guard is the competent Minister with respect to aquatic species, other than individuals occurring in or on lands under the administration of Parks Canada Agency. Currently, one population of Atlantic salmon (Inner Bay of Fundy) is legally listed on Schedule 1 of SARA. SARA aims to prevent wildlife species from becoming extirpated or extinct, to provide for the recovery of wildlife species that are extirpated, endangered, or threatened because of human activity, and to manage species of special concern to prevent them from becoming endangered or threatened. Whereas conservation strategies under SARA focus on listed populations, the Strategy aims to set the conditions necessary for Atlantic salmon and the Atlantic salmon community to thrive at the species level, including where populations are SARA listed.

3.4 International cooperation

In an effort to ensure alignment between domestic and international goals for Atlantic salmon in Canada, the Strategy acknowledges and integrates Canada’s work and commitments at the North Atlantic Salmon Conservation Organization (NASCO). This work is achieved through the Canadian delegation, which is comprised of representatives from federal and provincial governments, Indigenous organizations and non-government organizations. NASCO is a regional fisheries management organization. Its mission statement is to support and promote urgent and transformative actions directed at the protection, conservation and restoration of wild Atlantic salmon throughout the species’ range. All eight parties (Canada, Denmark - in respect of the Faroe Islands and Greenland, the European Union, Iceland, Norway, Russia, the United Kingdom, and the United States) implement NASCO’s mission using the best available science and in collaboration with non-governmental organizations. Additionally, Canada and the United States work cooperatively to support transboundary approaches.

4.0 Development of the strategy

DFO drafted the elements of the Strategy through engagement with Indigenous peoples and the Atlantic salmon community. In addition to reflecting feedback received through engagement, the Strategy builds upon the work already undertaken through the Policy, the Wild Atlantic salmon conservation: Implementation plan 2019 to 2021, the Standing Committee on Fisheries and Oceans report “Wild Atlantic Salmon in Eastern Canada” (2017), the Minister’s Advisory Committee “Special Report on Atlantic Salmon in Eastern Canada” (2015), as well as the extensive body of work on Atlantic salmon that speaks to the perspectives of Indigenous peoples, the scientific community, anglers, and others interested in this species. A full summary of the engagement process and ‘what we heard’ is available in the report, “Engaging on a Strategy to restore and rebuild Atlantic salmon” (2023).

5.0 Vision

The Strategy envisions a future state where rivers sustain Atlantic salmon and Atlantic salmon sustain our rivers, the cultural identities of Indigenous peoples, and the connections that many Canadians share with nature. It is through this community that Atlantic salmon populations are understood, restored, and celebrated as an integral part of the ecosystems they inhabit. Building on the iconic status of Atlantic salmon and its prevalence in social, cultural, economic, and academic domains, this species motivates stewardship actions at local and global scales and inspires the pursuit of a sustainable future for generations to come. In order to move towards this desired future state, the Strategy will be guided by the following vision over its 12 year lifetime:

Create the conditions necessary for Atlantic salmon and the Atlantic salmon community to thrive.

Who is the Atlantic salmon community?

The Atlantic salmon community consists of any individual or organization that studies, stewards, advocates for, or shares a passion for Atlantic salmon. The community is diverse and includes Indigenous peoples, Indigenous organizations, federal, provincial and municipal governments, recreational anglers and the angling industry, conservation organizations, academia, authors, artists, and many others. Within the community, important distinctions exist. For example, the rights held by Indigenous peoples are distinct from the privileges held by others. Differences also exist across the community in terms of the values and ideas held on how best to help salmon. The Strategy seeks to build understanding and respect for these distinctions and differences where they exist while championing a unified approach across the community as a whole. At this crucial time for Atlantic salmon, it is imperative for the community to be strong and unified. (Ways to participate in the community are suggested in Section 7.0.)

6.0 Strategic outcomes

The Strategy places emphasis on the achievement of conservation gains for Atlantic salmon in freshwater habitats. The management of Atlantic salmon in the high seas will continue to be influenced through the actions of NASCO, and improved understanding and mitigation of marine threats will continue to be pursued through partnerships that can address conservation issues at large geographic scales. Four strategic outcomes frame the direction for the Strategy over the next 12 years. The strategic outcomes and corresponding outputs focus on achieving the current Policy goal – “to restore and maintain healthy wild Atlantic salmon populations” – through an integrated approach for science, restoration policy, stewardship, and management activities. Strategic outcomes represent the change in state for salmon and the salmon community over the lifetime of the Strategy. Each strategic outcome has corresponding outputs that represent the actions or products that are generated as a result. The achievement of outputs will be reported against quantitative and qualitative metrics to allow for the overall progress of the Strategy to be measured.

Strategic outcome 1: A collaborative, place-based approach to stewardship ensures healthy, climate-resilient ecosystems that can support Atlantic salmon

With roughly 1,000 Atlantic salmon rivers within Canada’s jurisdiction, it will not be possible to invest everywhere. Therefore, decisions on where and how to prioritize resources and efforts need to be made across the species range. Taking a collaborative place-based approach in priority places can help.

A collaborative place-based approach is one that addresses complex social, environmental, and economic issues through tailored interventions at varied geographical scales (e.g., river or watershed), taking into consideration the unique local environment. An integrated watershed or river management plan communicates the agreed upon approach, which is meant to be developed and implemented collaboratively by Indigenous peoples and local communities, governments, partners, and stakeholders who are all accountable in reaching the shared goal.

In Canada, where the range of Atlantic salmon extends all the way from the border of Maine to central Labrador, the key threats impacting salmon are varied. For example, the cause of declines in the Miramichi River (NB) are different than the causes in the Conne River (NL) and the Clyburn River (NS). Even climate change, a force that puts pressure on Atlantic salmon wherever they occur, has different impacts in different localities. For example, in Labrador, populations may be expanding their range as waters warm. For this reason, a collaborative place-based approach is the best way for a national, species-wide strategy to provide meaningful and relevant support for salmon. Decisions on where, when, and why rivers and/or watersheds are adopted into the network of priority places over the lifetime of the Strategy will be made collaboratively, and will consider a diversity of knowledge sources (e.g., Indigenous knowledge, science, socio-economic factors, etc.), and scaled to resource availability.

Outputs

Strategic outcome 2: Alignment of Atlantic salmon-related processes and policies with United Nations Declaration on the Rights of Indigenous Peoples Act and its supporting Action Plan

Many Indigenous peoples’ everyday lives are interconnected with Atlantic salmon, and the species is critical to the ongoing mental, physical, cultural, and spiritual health and wellness of Indigenous peoples. Many Indigenous peoples have expressed their concern and grief over the loss of salmon, but have also expressed hope for a future with salmon. For some, this loss is symbolic of the larger forces of colonization that have devastated Indigenous cultures, languages, and identities. At the northern extent of the species’ range, Indigenous peoples are aware — and in some cases, concerned — that Atlantic salmon populations are increasing or are moving into areas where they were not previously seen. Indigenous peoples have expressed that their knowledge, rights, values, and perspectives have not been adequately considered or respected by the Government of Canada, where important discussions and decisions on Atlantic salmon are held.

At a species-wide level, Canada establishes its position on Atlantic salmon domestically through the Policy, and internationally through NASCO. Locally, many Indigenous-led organizations and communities play a leading role in Atlantic salmon stewardship and research. However, many barriers exist that limit the inclusion and leadership of Indigenous peoples at all levels. The Strategy recognizes that the spiritual, cultural, and socio-economic relationships Indigenous peoples share with Atlantic salmon are diverse and unique to each community. The collaborative place-based approach adopted in Strategic outcome 1 will support the aspirations and leadership of local Indigenous communities. Strategic outcome 2 will create space for Indigenous peoples to be heard at the national and international levels, and ensure that Government of Canada employees working with Atlantic salmon are provided with the information and education needed to conduct their work in a way that supports Indigenous participation in all Atlantic salmon activities.

Outputs

Strategic outcome 3: A vibrant, inclusive, and knowledgeable community on Atlantic salmon is positioned for success

With a Canadian range spanning five provinces, four DFO regions, and roughly 1,000 rivers, the Atlantic salmon community is large, complex, and diverse. There are varied perspectives, values, and beliefs held by individuals and organizations across this range, which are supported by different knowledge sources and systems. Understanding and sharing the many diverse ways in which Atlantic salmon bring value to the social, cultural, and economic lives of people across this network — including fisheries, scientific research, restoration activities, and cultural expressions — can support new ideas, innovation, and inclusion across species range.

While the Strategy is focused on stewardship activities for Atlantic salmon in its freshwater habitat, Strategic outcome 3 also recognizes that connecting people, projects, and data can enhance the benefits of what we learn to better serve salmon, and encourage the level of partnership and collaboration necessary to better understand the challenges faced by salmon at sea. Large, complex, multi-jurisdictional issues, such as low marine survival, cannot feasibly be solved by Canada alone, but can be influenced through positive actions taken in our home waters. This strategic outcome aims to provide the Atlantic salmon community with the data, information, and tools it needs to succeed in supporting the vision of the Strategy.

Outputs

Strategic outcome 4: Practices that support the management of fisheries and protection of Atlantic salmon are transparent, well-informed and responsive to the needs of salmon in a rapidly changing world

People’s sense of connection to Atlantic salmon motivates many valuable stewardship and restoration activities for this species across Atlantic Canada. Evidence suggests that Canadians are willing to invest more in the conservation of Atlantic salmon compared to any other aquatic species at risk in the countryFootnote 4. For many people, a sense of connection comes from recreational angling and other opportunities to directly interact with salmon. Maintaining those opportunities is important: recreational angling supports many rural economies, and the angling community is a driver of Atlantic salmon conservation and advocacy work. Of equal importance, however, is ensuring that these interactions do not pose a significant threat to the restoration or maintenance of Canada’s Atlantic salmon populations. Strategic outcome 4 supports sustainable connections to salmon, now and into the future.

Outputs

7.0 Get involved

The achievement of the Strategy’s vision – to create the conditions necessary for Atlantic salmon and the Atlantic salmon community to thrive– depends on the collective knowledge and expertise of everyone: Indigenous peoples, provincial and other levels of government, partners and stakeholders. There are different ways to get involved, and opportunities to contribute are not limited to what is suggested below. As a start, consider the opportunities that are most relevant to you or your organization:

Indigenous communities and organizations

Stakeholder organizations

Individuals

8.0 Implementation lifecycle

Recognizing that priorities, resources, and the needs of Atlantic salmon will change over the next 12 years of the Strategy, opportunities for periodic review have been built into its implementation lifecycle. Every four years, the Strategy will be reviewed in collaboration with the Atlantic salmon community to ensure its relevancy over the long-term. Status reporting every two years will allow progress to be measured against its strategic outcomes and outputs. DFO will provide opportunities for the Atlantic salmon community to contribute their achievements to these reports. In areas where progress is deemed to be poor, DFO will work with the provincial Atlantic salmon roundtables to evaluate causes, re-align resources, and make recommendations for better results.

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