pacific north coast integrated management area (pncima

Pacific North Coast Integrated Management Area (PNCIMA)

Issues, Challenges & Opportunities:A Discussion Paper

Acronyms

CCG CanadianCoastGuard

CMA CoastalManagementAreawithin aLargeOceanManagementArea

DFO FisheriesandOceansCanada(commonlyreferred toasDepartmentofFisheriesandOceans)

EBM Ecosystem-BasedManagement

EC EnvironmentCanada

FSC Food,SocialandCeremonial

GHG GreenHouseGases

GMA GeographicalManagementAreawithin aLargeOceanManagementArea

IMO InternationalMaritimeOrganization

LNG LiquefiedNaturalGas

LOMA LargeOceanManagementArea

MCTS MarineCommunicationsandTrafficServices oftheCanadianCoastGuard

NMCA NationalMarineConservationArea

PNCIMA PacificNorthCoastIntegratedManagementArea

RCA RockfishConservationArea

UNCLOS UnitedNationsConventionontheLawoftheSea

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Acronym

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Prepared for Fisheries and Oceans Canada (Pacific Region) on behalf of PNCIMA Secretariat

by J.G. Bones Consulting Brentwood Bay, BC 250-652-4002 [email protected]

June 2009

Contents

ACRONyMS....................................................................................................... ii

CONTENTS....................................................................................................... iii

1.0. INTRODUCTION.AND.CONTEXT............................................................11.1 Purpose .....................................................................................................................11.2 Ocean Planning Guidance .........................................................................................11.3 PNCIMA Overview ....................................................................................................2

2.0. MARINE.ACTIVITy.&.USE.ISSUES...........................................................32.1 Marine Transportation and Vessel Safety ................................................................32.2 Maritime Defence and Security ................................................................................52.3 Commercial Fisheries ...............................................................................................62.4 First Nations’ Marine Fisheries ................................................................................82.5 Recreational Fisheries ............................................................................................102.6 Marine Recreation and Tourism .............................................................................122.7 Marine Aquaculture ................................................................................................132.8 Renewable Ocean Energy ......................................................................................152.9 Non-Renewable Ocean Energy ..............................................................................172.10 Existing Land and Coastal Plans ............................................................................18

3.0. MARINE.ENVIRONMENT.&.CULTURE.ISSUES.....................................203.1 Marine Protection Tools ..........................................................................................203.2 Cultural Resources ..................................................................................................223.3 Accidental Marine Spills ..........................................................................................243.4 Marine Pollution ......................................................................................................263.5 Marine Climate Change Effects ..............................................................................283.6 Aquatic Invasive Species .........................................................................................293.7 Species at Risk & Species of Concern ....................................................................30

4.0. JURISDICTIONAL.AND.LEGAL.CONTEXT............................................324.1 PNCIMA Collaborative Governance .......................................................................324.2 First Nations’ Rights and Relationships ..................................................................32

5.0. CONCLUSION.......................................................................................33

ANNEX.1.–.BOUNDARy.OF.THE.PNCIMA.AREA...........................................34

ANNEX.2.–.REFERENCES.CITED....................................................................35

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Contents

1

Introduction and

Context

1.0. INTRODUCTION.AND.CONTEXT

1.1. Purpose.

Thisdiscussionpaperprovidesinterestedpartieswithahigh-leveloverviewofissueswithinthePacificNorthCoastIntegratedManagementArea(PNCIMA).Thepaperidentifiestheissues,thechallengesassociatedwitheachissue,andtheopportunitiestoutilizeanintegratedmanagementapproachtoaddressthesechallenges.

1.2. Ocean.Planning.Guidance

KeylegislationandpolicyguidanceareinplacetoguideintegratedoceanmanagementplanninginCanada.TheOceans Act1affirmsFisheriesandOceansCanada(DFO)astheleadfederalauthorityforoceans,andempowersitsMinistertoleadthedevelopmentandimplementationofintegratedmanagementplansforallactivitiesinoraffectingestuaries,coastalwatersandmarineareas.TheActrequires“collaborationwithotherministers,boardsandagenciesoftheGovernmentofCanada,withprovincialandterritorialgovernmentsandwithaffectedaboriginalorganizations,coastalcommunitiesandotherpersonsandbodies,includingthosebodiesestablishedunderlandclaimsagreements”intheseefforts.

Canada’sOceansStrategy(2002)2providesmorespecificpolicydirectionandactivitiesforimplementingtheOceansAct.Inthisdocument,theprinciplesofsustainabledevelopment,integratedmanagementandtheprecautionaryapproacharefurtherdefined,buildingonthecommitmentmadeintheOceansActtofollowtheseprinciplesindevelopingintegratedoceanmanagementplans,startingwithpriorityareas.AnaccompanyingPolicyandOperationalFramework(2002)outlinesmorespecificpolicyandguidelinesforintegratedoceansmanagementplanningprocess,structureandobjectives,andconfirmsLargeOceanManagementAreas(LOMAs)asthegeographicalbasisforintegratedoceanmanagementplanning.3ThePolicyalsoprovidesformorelocalizedplanningwithinaLOMA.

The2005CanadaOceansActionPlanidentifiedthePNCIMAareaasoneoffivepriorityLOMAsfortheimplementationofintegratedoceanmanagementplanning.4

In2002,CanadaandtheCoastalFirstNations(thenTurningPointInitiative)signedanInterimMeasuresAgreementtoworktowardsagovernment-to-governmentrelationshipforinvolvementinmarineuseplanning.OnDecember11,2008theFirstNations,representedbyCoastalFirstNations(CFN)andtheNorthCoast-SkeenaFirstNationsStewardshipSociety(NCSFNSS),signedaPNCIMA Collaborative Oceans Governance Memorandum of Understanding(MOU)withDFO.5TheMOUoutlinesaDFO/FirstNationsgovernancestructureandcoordinatingbodies,andproposesmechanismsforstakeholderengagementinthegovernment-ledplanningprocess.

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Introduction and

Context

1.3. PNCIMA.Overview

ThePNCIMAisapproximately88,000km2insize.ItcoversthenearshoreandoffshoreareasofthePacificCoastfromAlaska(Canada’sjurisdictionallimit)downtothesouthendofJohnstoneStraitoneasternVancouverIsland,andtoBrooksPeninsulaonthewestcoastofVancouverIsland(seemapinAnnex 1).ThePNCIMAboundaryreflectsavarietyoffactors,withecologicalconsiderationsamajordeterminantofitssouthernboundary.

ThePNCIMAareaisuniqueduetoitsinclusionofdiverseoceanecosystems,whichprovidecriticalhabitatformanyspeciesandprovidemarineresourcesthatcontributetocoastaleconomiesandprovidecommunitieswithasenseofplace.IthassustainedcenturiesofFirstNationscultureandcontinuestosupportthirtydistinctFirstNations.Awidevarietyofyearroundandseasonalactivitiesoccurintheoffshoreandcoastalareas.6Inthenearshoreareas,amuchbroaderrangeofactivitiesoccur,suchasaquaculture,ecotourism,utilityandcommunicationslines,thePortofPrinceRupert,ferrylandings,andcommunityharbours.

Forplanningpurposes,thePNCIMAcanbedividedintodifferentplanninglevels.TheLargeOceanManagementArea(LOMA)levelcoverstheentireregionandad-dressesregion-wideissues.TheGeographicalManagementArea(GMA)representssub-regionssuchastheNorthCoastorHaidaGwaii,anddealswithissuesofconcernacrossthesub-region.TheCoastalManagementArea(CMA)levelofplanningmayoccurforsmallercoastalareaswithinGMAswheremanagementofvalues,usesandactivitiesrequiresmorespecificdirection.

2.0..MARINE.ACTIVITy.&.USE.ISSUES.There are ten marine-related activities or use issues within the PNCIMA. Each issue section contains a general description of the activity or use, including why it is important, where it occurs, and how it takes place or is administered. Each section includes an indication of challenges the activity or use is facing, or poses to other activities and values, and the geographical extent of the chal-lenges within the PNCIMA. The sections and subsections conclude with a brief indication of the planning level(s) that may be appropriate for dealing with the issue, and the opportunities that an integrated management approach provides to address the issue and its challenges.

.2.1.Marine.Transportation.and.Vessel.Safety

ThreepatternsofmarinetransportationareevidentinthePNCIMA:1)local,community-orientedtraffic;2)large-scalecommercialandindustrialtraffic;and;3)transienttraffic.Marinetransportationfacilitiessuchasports,docksandharboursareincludedinthisissue.

Thefirsttransportationpattern,localcommunity-orientedtraffic,occurswithininletsandalongthecoastalzone,amongandbetweenPNCIMAcommunitiesandharbours.Thisincludescommercialandrecreationalfishingvessels,ferries,andbargesandtugsthattransportbulkproducts,goods,people,carsandpassengersfromonelocationtoanother.

Thesecondpatternisindustrialandcommercialvesselmovement,betweenlocationsinsideandoutsideofthePNCIMA.ItincludestrafficenteringandexitingthePortofPrinceRupert,KitimatandStewart,aggregatecarriersenteringandexitingPortMcNeill,rawlogsandaggregatetowedoutoftheregion,andfishingvessels(recreationalandcommercial)fromoutsidethePNCIMA.

ThethirdpatternisthetransitingofvesselsthroughPNCIMAwaters,enroutefromoneoutsidedestinationtoanother,andusuallywithoutstopsinthePNCIMA.ThisincludescruiseshipstransitingtheInsidePassagebetweenAlaskaandsouthernports,withoccasionalstopsatcoastalcommunities.

TankertrafficmovingcrudeoilcomingfromtheTransAlaskaPipelineSystems(TAPS)fromAlaskatosouthernUSAdestinationsdoesnotenterPNCIMAwatersunlessthereisanemergency.TAPSvesselsavoidthePNCIMAduetothevoluntaryTankerExclusionZonethatwasestablishedalongtheBCCoast.7Thepurposeofthezoneistokeepladentankerswestofthezoneboundaryinanefforttoprotecttheenvironmentandshorelineintheeventofatankerbecomingdisabledwhileintransit.Thenorthernportionoftheroutesisapproximately160kilometreswestoftheQueenCharlotteIslands.Thesouthernportionoftheroutesisapproximately137kilometresfromCapeScott,56kilometresfromEstevanPointand40kilometresfromAmphitritePoint,VancouverIsland.

Primaryresourceactivitiessuchasfishing,logging,aggregateextractionandminingstilldrivetransportationactivitiesinthePNCIMA.However,passengertrafficandtransportationofgoodsandservicesalsoensureasteadyflowofvessels.HighfishingvesseltrafficoccursfromJohnstoneStrait,throughQueenCharlotteSound,Hecate

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StraitandintoDixonEntranceinassociationwithmajorcommercialfishingactiv-ity(groundfish,shellfishandsalmonfleets).TheInsidePassageisusedextensivelyyearround,butQueenCharlotteSoundalsohassignificantpassengervesseltrafficinthesummer,includingferriesandcruiseships.BCFerryCorporationoperatesthreemainroutesinPNCIMA:PortHardy-PrinceRupert,HaidaGwaii-PrinceRupert,andDiscoveryCoastPassage(PortHardytoMid-Coast).SmallerferryoperationsservetheislandcommunitiesadjacenttoPortMcNeill.Numerouswatertaxiopera-tionsservicesmallcommunitiesyear-round.LargecommodityvesselsboundforPrinceRupertorKitimatuseanestablishedroutethroughHecateStrait.

Themarinetransportindustryisamajorgeneratorofrevenueandemployment;asresource-basedindustriesdeclineithasbeenasourceofeconomicstabilityanddiversityinanumberofPNCIMAcommunities.Itisvitalforcontinuationofservic-ingcommunities,throughpassengerandfreightservices,andforcommercialactivitiessuchasmarinetourism,fishingandlow-costmovementoflogsandaggregates.ThedeepseaportatPrinceRupertisamajortrans-shipmentpointforBCcommoditiessuchasgrain,coal,oreandtimberandforimportedgoodsandcommodities.KitimatHarbourisalsoanactivetrans-shipmentpointforaluminumproductsandforimportofproductsusedinaluminumsmelting,aswellasmethanolandcondensateforpipelinetransfer.Marinetransportationactivitiesareprojectedtoincreasesubstantiallyinthenextfifteenyears,particularlywiththecurrentexpansionofthePortofPrinceRupert,therecentlyapprovedliquefiednaturalgas(LNG)facilityandEnbridge’sproposalofatwinnedoilandcondensatepipelineassociatedwithanewmarineterminalinKitimat.

Marinetransportationandvesselsafetyisprimarilyregulatedbyfederaldepartments.Programscoversafety,forecasting,andnavigationalaids.TheCanadianCoastGuard(CCG)MarineCommunicationsandTrafficServices(MCTS)controlsmovementoflargevesselssuchasfreighters,tankers,cruiseships,andfishingvesselsthroughcon-gestedwaterways.Internationallaws,includingthosemadeundertheUNConventionontheLawoftheSea(UNCLOS),alsoapplytoshippingandtransportation.Canadahasestablishedmanyregulationsandlawstocomplywithinternationalstandards.ImportantUNCLOSrequirementsinclude:allowingforeignvessels“innocentpassage”throughtheterritorialsea;allowingCanadatoregulatenavigationofshipsandaircraftthroughstraitsusedforinternationalpassage(e.g.theInsidePassage,HecateStrait);andrequiringCanadatopreventandcontrolmarinepollution.

Challenges.and.OpportunitiesChallengesassociatedwithmarinetransportationandsafetyissuesgenerallyapplythroughoutthePNCIMAandmaybestbeaddressedattheLOMAorGMAlevelsofplanning.Theyinclude:

•IncreasesinlargetrafficandsafetyissuesresultingfromPortofPrinceRupertexpansion,particularlyinestablishedtransitlanesinHecateStrait;

•PotentialincreasesinlargevesseltrafficinDouglasChannel,andrelatedsafetyandenvironmentalrisksresultingfromproposeddevelopmentsinKitimat;

•Impactofmarinetransportationincreasesonfisheriesandmarineresourceharvestingactivitiesinbothcoastalandoffshorewaters;

•Vesseltrafficimpactsonmarinewaterqualityandmarineecosystemsthroughdischargeofwastewaterandgarbage,noise,airemissions,accidentalspills,bilgedumping,ballastwaterdischargeandexchange,andvesselwakeimpacts;

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•Vesseltrafficconflictswithotherhumanactivities;

•Seabirdandmarinemammalmortalitiesfromvesseldischargesandcollisions.

ThePNCIMAprocessprovidesanopportunitytoaddressexistingandpotentialconcernsthroughthedevelopmentofpolicyonvesselinteractionswithotheractivitiesandonsafetyissues.ThePNCIMAprocessalsoofferstheopportunitytoimprovevesseltrafficmanagementpracticesandlocationsbyapplyingknowledgeoftimeandlocationofpotentiallyconflictingactivitiesandoccurrences,suchasprimefisheryperiods,whalemigrationcorridorsandperiods,andlocationofsensitiveecosystemsandpotentialMPAs.

.2.2.Maritime.Defence.and.Security

MaritimedefenceandsecurityoperationsstemfromCanada’srequirementtomain-tainnationalsovereignty.TheseoperationsarenecessitatedinthePNCIMAduetoitsproximitytointernationalbordersanditslengthofunpopulated,accessibleshoreline.Maritimedefenceandsecurityoperationsincludedealingwithsituationssuchassecu-ritythreats,illegalimmigration,encroachmentofforeignfishingvessels,drugsmug-gling,aswellasnavalexercisestoimprovecombatreadinessofCanadianforces.

MaritimedefenceoperationsarecoordinatedbytheCanadianFleetPacific(CANFLT-PAC)oftheDepartmentofNationalDefence(DND),withtheCanadianCoastGuard(CCG),DepartmentofFisheriesandOceans(DFO),theRoyalCanadianMountedPolice(RCMP),ParksCanadaAgency(PC),EnvironmentCanada(EC),CanadianBorderAgency(CBA),andCanadianRevenueAgency(RCA)providingsupportonsovereigntypatrols.Thesedepartmentsandothersalsoassistinsurveillancepatrolsfocusedonthedetection,reportinganddeterrenceofillegalactivities.

ThePortofPrinceRupertalsohasasecuritymandate,whichincludescommunica-tionsandcoordinatedenforcementactivitieswithotherdepartments.ThePort’smainsecurityriskisfromcruiseshiptrafficmakingberthattheAtlinorNorthlandTerminals.

Challenges.and.OpportunitiesChallengesassociatedwithmaritimedefenceandsecurityissuesapplytotheentirePNCIMA,andmightbeappropriatelyaddressedattheLOMAlevel.Thechallengespresentedbythisissueinclude:

•IncreasedsecurityeffortandrequirementduetofutureoperationofaKitimatLNGterminalandEnbridgeoilterminal;

•Increaseddemandsoncustomsandsecurityoperationsduetoincreasesinmarinetourismfrombothlargepassengerandsmallerpocketcruises;

•IncreasedpotentialforlegalandillegalfishingactivitiesinPNCIMAduetopossiblespeciesdistributionchanges;

•Potentialinterferenceofnavalexerciseswithotheractivitiesanduses,anddamagetosensitivemarinehabitatandspecies.

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AnintegratedoceanplanningprocessprovidesarareopportunitytoimproveunderstandingofthisimportantissueinPNCIMA,andtodevelopmeansofintegratingmaritimedefenceandsecurityactivitieswiththoseofotherusergroups.Informationonlocationandtimingofimportantactivitiesandareas,suchaswhalemigra-tions,peakfishingactivity,andsensitiveareascanalsobemeansofintegratingactivities.

.2.3.Commercial.Fisheries

Commercialfishingactivityinthiscontextreferstotheregulatedharvestingofwildfinfishandinvertebratespeciesusingavarietyoftechniques,geartypesandvessels,forcommercialpurposes.CommercialfishingactivitieshavebeeninstrumentalinshapingtheeconomyandcultureofBCcoastalcommunities,areanimportantcomponentofcoastalFirstNations’cultureandeconomy,andmakeasubstantialcontributiontotheprovincialeconomy.Pacificsalmon,halibut,Pacificherring,variousrockfishandnumerousgroundfishandshellfishspecies,inparticular,arekeystonespecies.

Thefishingindustry,includingfishprocessing,remainsoneofthemostimportantemployersinthePNCIMA(bothdirectlyandindirectly),aswellasinservicesandeconomicvalue.However,itssizeandcontributiontoPNCIMAcommunityecono-mieshasdeclinedsignificantlysincetheearly1990sduetovariousgovernmentpoliciesandprograms,aswellasdeclinesinsalmon,herringandsomeshellfishstocksandotherfactors.

DFOistheleadregulatoryagencyforsustainablemarinefisheries,andhasdividedthePacificRegionintoPacificFisheryManagementAreas(PFMAs)andsub-areas.Openingandclosingofthesesub-areastoharvestingenablesmanagementofharvestratesandeffortsonagivenstockorspecies.DFOmanagescommercialfisheriesthroughsuchtechniquesasareaclosures(includingRockfishConservationAreasandMarineProtectedAreas),tripandmonthlycatchlimits,individualvesselquotas(IVQ)andstockquotas,sizeandweightlimitsoffish,gearrequirements,portandvideomonitoring,andexperimentalfisheries.DFOalsodevelopsintegratedfisher-iesmanagementplans.CommercialspeciesaregenerallymanagedsustainablywithinputfromgovernmentadvisorybodiesincludingrecreationalandcommercialfishingsectorsandFirstNations.Managementofsomespeciesisalsoinfluencedbyinter-nationalgovernance,suchasthePacificSalmonCommissionandtheInternationalPacificHalibutCommission.

AvarietyofcommercialfishingactivitytakesplacewithinPNCIMAwaters.Thedistributionandfishingeffortvariessignificantly,butPNCIMAoverallisasignificantcatchareaformostBCfisheries.Itgenerates85%ofBC’strawlcatch(excludinghake),90%ofitshook-and-linecatch,85-90%ofthesablefishcatch,85%ofthesalmoncatch,85%ofthespawnonkelpharvest,inmanyyearsthemajorityoftheroeherringharvest,60%ofthegeoduckcatch,43%ofDungenesscrabcatch,36%oftheprawncatch,andalmosttheentireredandgreenurchinandseacucumbercatchontheBCcoast.8

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Thefishingmethodsarealmostasdiverseasthespeciesbeingfished.Theground-fish trawl fishery catchesamultitudeofgroundfishspeciesnearoratthebottomofthewatercolumn,orbyamid-watertrawltargetingfishabovetheseafloor.Hook and line fisheries,usinglonglineandhandlinemethods,targethalibut,blackcod,dogfish,lingcod,inshorerockfishandsloperockfish.Thehalibut fisheryisentirelyconductedbylonglinegear.Thesablefish fisheryoccursbytrap,longlineandtrawl,butthemajorityofallowablecatchisallocatedtothetrapfishery.Thesalmon fisheryinvolvestroll,seinenetandgillnetgeartypes,withseinefishingtakingapproxi-mately50%.Theherring fisheryinvolvesroe,spawn-on-kelp,specialuse,andfoodandbait,andusesmethodsincludinggillnetandseinemethods,useofkelpfrondssuspendedinopenwatersorinenclosures.Thereisagrowingsardine fishery,pri-marilyoffVancouverIsland.Invertebrate fisheriesconsistofthegeoduckandhorseclamfishery,theintertidalclamfishery,squidfishery,shrimpfishery,shrimptrapandprawntrapfishery,crab,seaurchinandseacucumberfisheries.Theyareharvestedusingdifferentprescribedmethods,suchasdiving,hand-picking,seineandtrawlfishing,trapsandnets.Quotasandharvestperiodsarealsoapplied,alongwithper-manentclosures.

Challenges.and.Opportunities..ChallengesassociatedwithcommercialfishingactivityoccuracrosstheentirePNCIMA,andcouldbepotentiallyaddressedattheLOMAorGMAlevel.Theyinclude:

• Fisherystockabundancechangesduetoacombinationoffactors,includingbutnotlimitedtonaturalvarianceinrecruitmentevents,changestoharveststrategiesandlevels,andevolvingbiologicalandoceanographicconditions,includingclimatechangeeffects;

• Potentialchangesinspeciestype,abundanceanddistributionduetoclimatechangeandoceandynamics;

• Potentialchangesoffishingsectorsandsectorscalesasaresultofchangesinfisheriespolicy,marketvalues,andglobaldemandforseafoodproducts;

• PotentialconflictwithothernonfishingcommercialandrecreationalactivitiessuchaswindfarmsandFirstNationsrightstomarineresources;

• Competitionamongstdifferentallocationsandconservationprogramobjectives,includingMPAestablishment;

• Impacttobottomandsub-tidalhabitatassociatedwithbottomcontactingharvestingtechniques;

•Seabirdmortalityincurredduetobycatchinlonglinefisheries,andentangle-mentinsetnetfisherieswhichconflictswiththeMigratory Bird Convention Act;

•Conflictandcompetitionbetweencertaingeartypefisheriesandnearshoreusesandactivities;

•Incidentaltakeimpactcausedbysomegear-typefisherieson‘nondirectednon-commercial’speciessuchaseulachon;

• Economicimpactofstockdeclinesonfisheries,coastalcommunitiesandemploymentbase;

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• Impactofmarinetransportationincreasesandinteractionswithoncommercialfishersandactivities.

Anintegratedoceanmanagementplanningapproachprovidesasignificantopportunitytoevaluate,modifyandimprovefisherypracticesandmanage-menteffortsfromanecosystem-basedperspective.Itprovidesanopportunitytodeveloppolicyandidentifyareasthatwillaffordlong-termprotectionfromimpactsrelatedtofisheries,identify(andrestorewherepossible)areasinneedofshortandlongtermprotection,anddevelopfisherymanagementobjectivesthatwillassistinmeetingfutureobjectiveswithinthePNCIMAarea.Inparticular,coastalcommunitieshavetheopportunityforinvolvementinthedevelopmentofstrategiesforresilientandsustainablefisheriesthatwillhelpmaintaincoastallivelihoodsandculture.

.2.4.First.Nations’.Marine.Fisheries

CoastalFirstNationsgatherandharvestmarinefish,plantsandinvertebratesforfood,socialandceremonial(FSC)purposes.TheseFSCFisheriesmayincludetheharvestingofsalmon,eulachon,groundfishandotherfinfish,clams,mussels,cockles,barnacles,urchins,seacucumber,octopus,squid,geoduck,kelp,seaweed,herringroe-on-kelpandotherspecies.

CoastalFirstNationshavelongmadeuseofmarineresourcesforFSCpurposes,andtheyarestillanintegralpartofcoastalFirstNations’culture.ManycoastalFirstNationsalsoparticipatedinatradingnetworkwithseafoodproductsonthecoastandintheBCInteriorwithotherAboriginalpeoplesandEuropeansettlers,whichin-cludedthetradeofeulachongrease,driedseaweed,halibut,herringroe-on-kelp,aswellassalmonandmanyothermarinespecies.Thepracticesoftrading,sharingandgiftingcontinuetosupplymanyFirstNationswithtraditionalfoodsthatarenotlo-callyavailable.TheFirstNations’marineFSCfisheryremainsculturallyimportant,andisalsoasignificantfoodsourceforFirstNations’communitieswithinPNCIMA.

Inakey1990SupremeCourtdecision(R v. Sparrow,)FirstNationsfishingrightsforFSCpurposeswereconfirmedasapriority,afterconservation,overotherfisher-ies.InresponsetotheSparrowCourtdecision,DFOcreatedanAboriginalFishingStrategy(AFS)toenhancesustainableaboriginalparticipationinfisheries,andtoactasaninterimmeasureintheabsenceoftreaties.TheAFSenablesDFOtoenterintoagreementswithaboriginalgroupsonFSCfishing,andforcollaborationwithaborigi-nalgroupsinthedesignandimplementationofco-operativemanagementprograms.9TheAFSestablishesfundingagreementswithaboriginalgroupsforspecifically-approvedactivitiesthatmayincludemanagementofaboriginalfisheries,habitatrestoration,fishenhancement,community-basedresearch,economicdevelopmentorstakeholderconsultation.AFSagreementsmayalsocontainprovisionsdescribinghowFirstNationsmanagetheirmembers’FSCfisheries.

AnAllocationTransferProgram(ATP)providesaboriginalgroupswithsomeemploy-mentandincomethroughaccesstocommercialfisheries,andfacilitatesthevoluntaryretirementofcommerciallicencesandre-issuanceascommunalcommerciallicencestoeligibleaboriginalgroups.

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AgreementsinthePNCIMAincludeamulti-NationSkeenaRiverWatershedAgreementandagreementsundertheAboriginalAquaticResourceandOceansManagementProgram(AAROM)withindividualFirstNationsintheNorthCoast,CentralCoastandHaidaGwaii.FundingfromtheAAROMprogramisdesignedtoaccomplishavarietyofgoalsincludingassistancetoaboriginalgroupsinacquir-ingtheadministrativecapacityandscientific/technicalexpertisetofacilitatetheirparticipationinaquaticresourceandoceansmanagement.AAROMfundingcanalsobeusedtoencouragetheestablishmentofcollaborativemanagementstructuresthatcontributetointegratedecosystem/watershedmanagementandplanningprocessessuchasPNCIMA.InadditiontoprogramssuchasAAROM,thePacificIntegratedCommercialFisheriesInitiative(PICFI)isaninitiativedesignedtoenhancecatchmonitoringandreporting,thebeginningsofasystemtotracefishfromtheirharvesttotheconsumer,ashare-basedapproachtomanagingcommercialsalmonfisheriesintheregion,morecollaborativefisheriesmanagementandgreaterFirstNationsparticipationincommercialfisheries.

TreatynegotiationsbetweencoastalFirstNations,CanadaandBCarecurrentlybeingconductedtoestablishtreatieswhichmay,amongstotherthings,establishandconfirmFirstNationsaccesstofisheries.Inaddition,TreatiesmayincludeprovisionsforFirstNationstobeinvolvedinaquaticresourcemanagementandplanning.SeveralPNCIMAFirstNationsareinvariousstagesofthesix-steptreatyprocesswithCanadaandBC.SomeFirstNationsonVancouverIslandarealsosubjecttoexisting(Douglas)treaties,whichrecognizetheseFirstNations’righttocarryontheir‘fisheriesasformerly.’

Challenges.and.OpportunitiesChallengesassociatedwithFirstNations’marinefisheriesoccurthroughoutthePNCIMAandmightbeaddressedatthemoredetailedCMAandGMAplanninglevels.Theyare:

• EffectofchangingabundanceoffishstocksonFirstNations’fisheries;

•EffectofchangingabundanceoffishonFirstNations’foodsourcesaswellasonlivelihoods;

•Impactofsomegear-typefisheriesonabundanceandlocationofspeciesimportanttoFirstNations’culturaluse,suchaseulachon;

•PotentialeffectofmarineusesandactivitiesonhealthandqualityofmarineresourcesconsumedbyFirstNationsforFSCpurposes;

• Potentialeffectfromtheallocationofmarinespacetootherusersthatmayim-pactaccessorstockabundanceadjacenttoimportanttraditionalfishingareas;

• PotentialfrictionbetweenFirstNationsandnon-aboriginalfishersresultingfromfuturetreatiesandCourtdecisions;

• PotentialfrictionbetweenFirstNationsandnon-aboriginalfishersoverpotentialallowanceofFirstNationsfishinginMarineProtectedAreasclosedtonon-aboriginalfishers;

• CapacitybuildingforFirstNationsinordertoeffectivelyparticipateincommercialfisheries;

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• ImpactsoffutureMPAestablishment;

• ImpactsofmarinetransportationincreasesonFirstNations’fisheriesactivities.

ThePNCIMAintegratedoceanmanagementplanningprocessisnotintendedtoreplaceorsubstituteforgovernment’sfiduciaryobligationstoconsultwithFirstNationsonfisheriesmanagementissues.Howeveritprovidesauniqueopportunityfordialogueamongfisheryresourcemanagersandthevariousindustrysectorsdependentoncommonfisheryresources.ThisdialoguemayleadtoagreementonmanagementpracticestoavoidconflictsandcompetitioninareasutilizedforFSCharvesting,andtoreducepollutionandotherriskstofisheryresources.

.2.5.Recreational.Fisheries

Recreationalfishing(orsportfishing)istherangeofactivitiesandexperiencesthatinvolvefishingforpersonalleisure,personalconsumptionorsportpurposes.Itincludestidalwaterangling,andthegatheringofshellfish.Bylaw,fishcaughtinrecreationalfishingcannotbebought,soldorbartered.

DFOregulatesandmanagesBC’stidalwaterrecreationalfishingandmarinespeciesonasustainablebasis,usingitsauthoritytoidentifyclosedtimesandareaswherefishingisprohibited,baglimitsandsizelimitsforallsportfisheries.Themulti-stakeholderSportFishingAdvisoryBoard(SFAB)advisesDFOonrecreationalfishingplans,fisheryregu-lationsandareasofconcerntotherecreationalfishingcommunity.

Therecreationalfisheryisasignificantcontributortotheprovincialeconomy.Anglersspendmoneyontransportation,food,accommodation,guidingservices,equipmentandsupplies.Theindustryalsogeneratesmanyjobs,withlodgesandchartersrepresentingabout35%ofjobsintheindustry.Thehigheconomicvalueofthisfisherycomparedtothenumberoffishcaughthasinfluencedsomefisheriesmanagementpolicydecisions,whichgiveprioritytotherecreationalfisheryoverthecommercialfisheryforsomespe-cies(chinookandcohosalmon).

InthePNCIMA,about80%oftherecreationalcatchiscomprisedofchinookandcohosalmon.Halibutfishingisalsoveryimportantinsomeareas.Rockfishandlingcodfisheriesareimportant.Steelhead,tunaandsablefisharealsocaughtintherecreationalfishery.Fishingforprawns,crab,squidandshellfishisincreasing.Asmallseacucum-berrecreationalfisheryalsooccurs.

ThemajorrecreationalfishingareasofthePNCIMAareadjacenttomajorinletsalongtheNorthandCentralCoast,northGrahamIsland,thecoastlineofnorthernQueenCharlotteStrait,andtheentrancetoQuatsinoSound.Steelheadistypicallycaughtinnon-tidalwatersandBC’srivers,suchastheSkeena,NassandLowerDeanRiver.Recreationalfishinghasbeenundergoingashiftinwhichanglingisonepartofabroad-eroutdooradventure.ThePNCIMAintegratedoceanmanagementplanmayprovideanidealopportunityformanagersandresourceuserstorespondtothisnewdemand.

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Thefishinglodgeindustryhasbecomeincreasinglyimportantinincreasingrecrea-tionalfishing.In2006,therewere43fishinglodgesinthePNCIMA.AnincreaseinfishinginPrinceRupert,HaidaGwaii,BellaBella,Shearwater,OceanFallsandBellaCoolahasalsobeenattributedtocruiseshipstop-oversandBCFerrypassengertraffic.Increasedyachttrafficcruisingtheinsidepassageisalsocontributingtofishingactivity.

Challenges.and.Opportunities

RecreationalfisherieschallengesarelikelyinhighuseareasofthePNCIMA,asidentifiedabove.TheycouldbeaddressedatbothLOMAandGMAplanninglevels,andinclude:

•Economicimpactontheindustryandcoastalcommunitiesofreducedcatch,causedbyreducedpopulations,newconservationmeasures,MPAs&RCAs,andincreasedallocationtoFirstNations;

•Increasingconflictbetweenrecreationalfishingandotherusergroups;

•Abilitytomonitor,andunderstandsportfishingcatch;

•Regulationofsportfishinglodgesandcharteroperators;

•Potentialimpactofland-basedactivitiesonspeciessuchassteelheadthatutilizefreshwaterforpartoftheirlifecycles;

•PotentialfrictionbetweenrecreationalfisheriesandFirstNationsfishersresultingfromfuturetreatiesandCourtdecisions;

•ImpactsoffutureMPAestablishment;

•Impactofmarinetransportationincreasesonrecreationalfisheriesactivities.

ThePNCIMAintegratedoceanmanagementplancouldprovideameansofassessingthesechallengesandprovidingrecommendationsonacceptablefisherypractices,resolvingconflictswithcommercialandFirstNationsinterests,andidentifyingmutually-agreeableareasforsustainableuse,orforconservationandprotectionpurposes.AnintegratedapproachamongvariousstakeholdersandgovernmentsisanimportantmeansofensuringrecreationalfishingisasustainableindustryinthePNCIMA.

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2.6.Marine.Recreation.and.Tourism

Marinerecreationandtourismincludespublicandcommercialactivitiesbasedontheuseoftheoceanenvironmentandresources.Itinvolvessuchactivitiesasoceankayaking,recreationalboating,diving,marine-basedcampingandvisits,privatere-sourceharvesting,wildlifeviewing,sportfishingandmarinecruisingbylargeships,pocketcruisersandsmallervessels.(Recreationalfishingisdiscussedinsection2.5).ThePNCIMAisnowworld-renownedformanyoftheseeco-basedactivities.

InthePNCIMApublicrecreationtakesmanyformsandiscarriedoutbylocalresi-dentsaswellasmanyseasonalvisitorswhovisitorpassthroughthearea,primarilybymarineandairtransportation.Tourismactivitiesarelargelynature-based,althoughvisitsforaboriginalcultureandcommunity-basedexperiencesalsotakeplace.Cruiseship,pocketcruiseandBCFerry-basedtourismrepresentsignificantcontributorstotourism.Tourismactivityalsocoincideswithimportantecological-basedpatterns,suchaswhalemigration.

OceanrecreationinBC(whichincludesrecreationalfishing)isthegreatestcontribu-torofalloceanbusinesssectorsintermsofproductoutput,incomegenerationandemployment.ThecruiseindustryaloneinBCisestimatedtobeworthapproximately$500milliontotheeconomy.Cruiseshipstypicallybenefitandstimulatelocaleconomieswhentheymakestopsforpassengershoreexcursions,suchasshoppingandsight-seeing.Recreationandtourismindustriesprovideimportantmeansofdiversifyingcoastalcommunityeconomiesandgeneratingnewbusinessopportunities.

RecreationalandtourismactivitiesoccurthroughoutthePNCIMA,buttherearesignificantareasofseasonalimportancefordifferentactivities.Forexample,seakayakingactivitiesareconcentratedinthesummermonthsintheBroughtonIslandsandJohnstoneStrait.Cruiseship-relatedexcursionsoccurprimarilyintheareaadjacenttoPrinceRupert,whilesmallerscalecruisevisits,knownaspocket-cruiseshaveincreasedtourisminPrinceRupert,PortHardy,Sointula,AlertBay,TelegraphCoveandonHaidaGwaii.PocketcruisestoPrincessRoyalIslandandGwaiiHaanashavebecomeincreasinglypopularwiththeestablishmentofnewconservancies.Recreationandtourismopportunitiesarecloselylinkedtoshorelineandnearshorefacilitieswhichmayincludeboatramps,docksandmarinas,repairandfuellingbusinesses,campgrounds,marineparks,shelteredanchoragesandboathavens.

Mosttourismisseasonal,whilerecreationalactivityoccursoveramoreextendedperiod,dependingonthenatureoftheactivity.Tourismisgenerallyalignedwithcruiseship,pocketcruiseandDiscoveryPassageferryschedules.Largevesselcruiseshipsgenerallytravelthroughtheregioninthesummermonths,andstoponlyinPrinceRupert.ThesmallerpocketcruiseandBCFerriesvesselsoperateoveralongerseason.

Anumberoffederal,provincial,localgovernmentagenciesandregionalorganizationshaveprogramsandresponsibilitiesassociatedwithencouragementanddevelopmentofmarinerecreationandtourism.Thesedifferentorganizationsresultinconsiderableregionalmarketing,tourisminvestment,andinfrastructuredevelopmenttoexpandrecreationopportunitiesandtourismattractions.

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Challengesassociatedwithrecreationandtourismarelikelytooccurinareaswhereactivitiesarecurrentlyconcentrated.ThesemightbeaddressedatbothGMAandCMAlevelsandinclude:

•Potentialreductionincruiseandferrytrafficvisitorsduetoeconomicdownturn,highercostsandotherfactors;

•Potentialadverseimpactofeco-tourismoperationsonmarinemammalsandwildlifethroughnoiseanddisturbance;

•Environmentalimpactsofmarinefacilityimprovementstoservicetourism,suchasdredging;

•Increasedcompetitionwithlocalresidentsforrecreationopportunitiesandavailableservices;

•Conflictswithlarge-scalecommercialtourismandotherindustrialandcommercialactivities,aswellasmarinetrafficincreases;

•Increaseddemandsoncustomsandsecurityoperations;

•Developingayear-roundrecreationandtourismeconomicbase.

ThePNCIMAintegratedoceanmanagementplanningprocessprovidesanopportunitytodevelopintegratedstrategiesforthedevelopmentandmaintenanceofasustainabletourismindustrythatminimizesconflictswithotherusesandbenefitslocalresidents.Itmayprovideausefulforumforcoordinatingtourismmarketinganddevelopmentstrategies,andforencouragingthecoordinationofrecreationalopportunitydevelopment.

.2.7. Marine.Aquaculture

MarineaquacultureinthePNCIMAconsistsoffinfish(primarilysalmon)andshellfish.Allofthemarineaquaculturesiteswithintheareaarefoundinforeshoreandnearshorecoastalzonesandrequirefederalandprovincialapprovals.

ThePNCIMAishometoabout55%ofthefinfishaquaculturesitesinBC.ThemajorityareintheCentralCoast,concentratedintheBroughtonArchipelago.PartsoftheCentralCoast,QueenCharlotteStrait,andJohnstoneStrait-ButeInletalsohaveanetworkoffarms.FinfishproductionisprimarilyAtlanticsalmon.Otherspeciesbeingdevelopedfordiversificationincludeblackcodandrockfish.

ShellfishfarmsinthePNCIMArepresentabout2.5%oftheprovincialtotal(currently11sites).AnumberofsiteshaverecentlybeenidentifiedandreservedforFirstNations’farminginterests.NewtenuresintheNorthCoastandHaidaGwaiiareanticipatedinthenearfuture.Operationsincludeon-beachcultureaswellassub-tidalandoff-bottomraftingoperations.InthePNCIMAexistingsitesproduceManilaclams,mussels,JapanesescallopsandPacificoysters.Otherspeciesarebeingexploredfordiversificationofthissector.

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Aquacultureisamajorcontributorofrevenue,employmentandasourceofeconomicstability,primarilyinthesouthernpartofthePNCIMA.Indirecteconomicbenefitsincludefishprocessing,transportationanddistributionaswellasfabrication.

Opennet-cagefinfishaquaculturehashadacontroversialhistoryinBC.Thereisacomprehensiveregulatoryandmanagementstructureinplaceforaquaculture,basedonsoundscientificadviceandmitigationofenvironmentaleffects.However,acceptancebymanyresourceusersremainsunresolved.FirstNationsandstakeholdershaveraisedissuesduetoconcernsthatenvironmentaleffectsofaquaculturemayresultinnegativeimpactstomarineresourcestherebylimitingaccessfortheiruseoftheresource.

FutureaquacultureopportunityexistsassuitablesitesexistincertainareasofthePNCIMAforaquacultureexpansion.However,inMarch2008,theprovincialgov-ernmentplacedamoratoriumonfinfishapplicationsinNorthCoastwaters150kilo-metresfromthemouthoftheSkeenaRiver.Existingandfuturedemandforseafoodproductsisexpectedandcanleadtostrengthenedanddiversifiedlocaleconomies.Ifinnovativetechnology,financialfeasibilityandanynewenvironmentalperformancemeasurescanbeachieved,closedcontainmenttechnologiesandintegratedmulti-trophicaquaculturemethodologyofferfurtheroptionsfordiversificationofthissector.


ChallengesassociatedwithmarineaquaculturegenerallyapplytospecificcoastalareasandmightbebestaddressedinCMAlevelplanning.Manyareaddressedthroughgovernment’sreviewandreferralprocessesforapplications.Theymayinclude:

• Competitionforsitesforusebyotherresourceusers;

• Potentiallossofaccesstositesforpublicuse,anchorage,safehavens,recreation,andfishery;

• Potentialsocialeffectsduetoodour,noise,andmodifiedviewsonadjacentlandowners,boaters,marinetourismoperators,andthepublic;

• Potentialenvironmentaleffectsonthepublicresourceincludingwaterquality,fishhabitat,fishhealth(includinggeneticeffects)andfishpopulationsaswellascumulativeandecosystemeffects;

• Waterqualitymonitoringrequiredtoopenareasforculturedshellfishproductandmonitoringforharmfulalgalblooms;

• Aquaticinvasivespecies,likecolonialtunicates,andtheirimpactonculturedshellfishstock;

• Climatechangeeffectsontheaquacultureindustry,includingoceanacidificationandwatertemperatureincreases;

• Establishmentofescapedspeciesbeingcultured(i.e.,Atlanticsalmon).

Theintegratedoceanmanagementplanningprocesshasthepotentialtocomplement,informandimproveexistinggovernmentpolicyonaquaculture,improvecommunicationsandunderstandingofaquaculture,andtoprovideforstrategiesforconsiderationbyoceanresourcemanagersforadaptationtopossibleclimatechangeeffectsonaquacultureinthePNCIMA.

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2.8. Renewable.Ocean.Energy

Renewableoceanenergyaddressescommercialactivitiesaswellasresearchandde-velopmentactivitiesrelatedtowind,waveandtidalenergyresources.Offshorewindenergyisusedbywindturbinesinstalledtotheoceanfloortogenerateelectricity.Tidalandoceanenergycanbeutilizedtogenerateelectricitybyusingtidalcurrentstodriveturbinesorothertechniques.Wavepowerharnessestheenergyinwaves,usingeitheronshore-fixedoroffshore-floatingtechnology.WhilecommercialoffshorewindfarmsexistoffthecoastofWesternEurope,waveandin-streamcurrenttech-nologiesareatanearlystageofdevelopmentandmostofthesetechnologiesarestillatthetestingordemonstrationphase.

Projectsrequireavarietyofprovincialandfederalapprovals,dependingontheirtype,size,andlocation.Thefederalgovernmentwillhavegreaterregulatoryresponsibili-tieswithrespecttooffshorerenewableenergyinprovincialwatersthanitmightforatypicalrenewableenergyprojectonshore.Thisisduetothefederalgovernment’sresponsibilitiesforanumberofmarine-relatedissues,including(butnotlimitedto)oceansmanagement,fisheries,navigablewaters,andmigratorybirds.

Althoughthemanagementofelectricitygenerationandtransmissionisnormallyaprovincialresponsibility,offshorerenewableenergyisuniqueinthatfacilitiescanbeplacedinareasoutsidethejurisdictionofanyprovince.Inthiscase,thefederalgov-ernmentwouldhaveexclusivejurisdictionovertheproject.Ultimately,however,thepowergeneratedintheseareaswillbedeliveredtoelectricitysystemsmanagedandregulatedbyprovincialgovernments,whomaintainanumberofimportantregulatoryresponsibilitieswithrespecttotheseprojects.NaturalResourcesCanadaiscurrentlyleadingthedevelopmentofacomprehensivelegalframeworktomanageoffshorerenewableenergyonfederalCrownlandsinpartnershipwiththeprovincesandotherfederaldepartments.

Intermsofprovincialgovernmentpolicy,interestinrenewableoceanenergyisreinforcedinthe2007BCEnergyPlan10andthepoliciesofBCHydro.TheEnergyPlancommitstoadvancingBC’selectricityself-sufficiencyby2016,usingadiversityoftechnologies,includingwind,largeoceanwaveandtidalenergysources.BCHydro’spoliciesandproposalcallsencouragetheproductionofenergyfrom‘green’orrenew-ableenergyprojects.

TheCanadianWindAtlas11identifieswindpotentialwithinthePNCIMA.Ingen-eralterms,theareasofhighestmeanwindenergyandmeanwindspeedarelocatedaroundthenortherntipofVancouverIsland,andinQueenCharlotteSoundandHe-cateStrait.Meanwindenergyintheseareasrangesfrom400-900watts/squaremetre,andmeanwindspeedrangesfrom6.5to10metrespersecond.ArecentassessmentofenergypotentialandestimatedcostsofwindpowergenerationpreparedforBCHydroindicatedatotalratedenergycapacityof0.6gigawatts(GW)forVancouverIslandsitesandacapacityof0.5GWforonshoreand1.4GWforoffshoresitesintheNorthCoast.12TheNaiKunWindFarmproposedforHecateStraitistheonlyoff-shorewindprojectproposedwithinthePNCIMAboundaries.IftheNaiKunprojectproceedsasplanned,itwouldbethefirstoffshorewindpowerfarminNorthAmerica.Thisprojectiscurrentlyundergoingajointfederal-provincialenvironmentalassessment.

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InthePNCIMA,bothNorthandCentralVancouverIslandhavebeenidentifiedforgoodtidalenergypotential.AfeasibilitystudyhasalsobeencompletedforHaidaGwaii.TherearecurrentlyanumberoftidalandwavetechnologydemonstrationprojectsinvariouslocationsoffthecoastofVancouverIsland.OneofthemostpromisingsitesinthePNCIMAregionisatDiscoveryPassage,betweentheStraitofGeorgiaandJohnstoneStrait.

TheBCmainlandandVancouverIslandcoastshavepotentialtosupplyamajorportionoftheoceanenergyresource.However,thedevelopmentofwaveenergysystemshasbeenhamperedbyhighcostsandBCHydrofundingpolicy.

Manycoastalcommunities,includingthoseonHaidaGwaiiandmanyFirstNations’communitiesarehighlydependentondieselfuelforelectricitygeneration.Renew-ableoceanenergyprojectshavethepotentialtoreducethisdependency,aswellaslowerenergycoststoresidents,generateemploymentinconstruction,manufac-turingandmaintenance,andreducecarbondioxideemissions.Theproductionofreliableandlower-costenergycouldalsoincreaseeconomicinvestmentinsmallercoastalcommunities.Intheshortterm,thesebenefitsaremorelikelytoberealizedfromthedevelopmentofwindenergy.Inthelongerterm,Canadaiswellplacedtobecomeaglobalwaveandtidaltechnologyleaderduetoitsgeography,rawresourcebaseandexistingexpertiseinoceanengineeringandoffshoreoperations.Oceanrenewableenergyandoffshorewindenergyarelargelyregardedasarelativelylowimpactactivitythatinmanycaseswillbecompatiblewithotheroceanuses,includ-ingconservationandenvironmentalprotectionmeasureslikeMPAs.


Challengesassociatedwiththedevelopmentofrenewableoceanenergywillgenerallybeconfinedtotherelativelyfewareaswithknownhighpotentialfordevelopment,andmightbestbeaddressedattheGMAorCMAplanninglevel.Challengesare:

•Competitionforhighpotentialsitesfromothermarineandcoastalusergroups,aswellasfrompotentialMPAs,particularlywithtidalenergyprojects,whicharelessflexibleinlocationthanwindandwavetechnologies;

•Restrictionondevelopmentinexistingparksandconservancies;

•Potentialinterferencewithtransportationroutesandnavigationandairtraffic;

•Visual,aestheticimpactsandnoiseimpacts;

•PotentialconflictwithothercommercialandrecreationalactivitiesandFirstNationsrightstomarineresources;

•Potentialimpactsasaresultoflaidandburiedtransmissioncablesonfishdistributionandmigrationandconflictswithfishingactivity;

•Lossoffisheryhabitatandareaavailableforrecreationalandcommercialfishing;

•Potentialimpactonmigratorybirds.

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ThePNCIMAintegratedoceanmanagementprocessprovidesanopportunitytoevaluateexistinghighpotentialareas,determinetheextentofcommunitysupport,andestablishmappingandpolicyguidanceforavoidingconflictsandcompetitionwithdifferentusesandinterests.PNCIMArecommendationsmayalsobehelpfulinputinfuturegovernmentreviewandassessmentofproposals.ThePNCIMAplanmayalsoassistkeyagenciessuchasBCHydroinevaluatingitslongertermpoliciesonalternativeenergy,andtoimplementprovincialgoals,manyofwhichrelyoncollaborationwithfederaldepartmentsandFirstNations.

2.9.Non-Renewable.Ocean.Energy

Non-renewableoceanenergyreferstoliquids,gasesandsolidsburiedbeneaththeoceanfloorthatareusedforgeneratingenergyandarenon-replenishing.Non-renewableoceanenergysourcesinthePNCIMAareprimarilypotentialpetroleumandnaturalgasdeposits.

WithinthePNCIMA,theQueenCharlotteBasin(QCB)isthemostimportantgeo-logicalareawithpotentialpetroleumandnaturalgasdeposits.TheQCBunderliesDixonEntrance,HecateStrait,QueenCharlotteSoundandpartsofHaidaGwaiitothenortherntipofVancouverIsland.A1998GeologicalSurveyofCanadareportindicatedapetroleumresourcepotentialfortheQCBof9.8billionbarrelsofoiland25.9trillioncubicfeetofgas.Howeverthesehydrocarbonassessmentsremainhighlyspeculativeduetotherelativelylowlevelofavailableinformation.

PetroleumreservesintheoffshoreareasofthePNCIMArepresentapotentiallyvaluableenergyresourceandeconomicopportunityforcoastalcommunitiesandBCresidents.Howeverthereisalonghistoryofdebateoveroffshoreoilandgasdevelopment,duetothepossibilityofadverseenvironmental,socialandculturaleffectsandthehighriskinBCoftectonicactivityandmajorweathereventsinthePNCIMA.

In1972,thefederalgovernmenthaltedoffshoreexplorationthroughafederalmoratorium.Anumberofreviewpanelshaveaddressedtheissue,including:a1984independentfederal-provincialEnvironmentalReviewPanel;a2001BC-appointedindependentscientificpanelandMLAcommunitymeetings;anda2003feder-ally-appointedreviewofCanada’smoratoriumthroughascientificreview,apublicreviewprocess,andaFirstNationsengagementprocess.CoastalFirstNationshaveexpressedstrongviewsonthisissue,andundertakenvariousreviewsofthetopic,duetopotentialeffectsonenvironment,communityandculture.Thesestudieshavegenerallyopposedliftingofthemoratoria,andsomeFirstNations(includingtheHaida)havedeclaredtheirownmoratoriumsonoffshoreexplorationanddevelop-mentintheirtraditionalterritories.

Tothisday,theGovernmentofCanadamaintainsitsfederalpolicydecisionnottoconvertexistingoffshoreBritishColumbiapermitstoexploratorylicenses.Theprovincialgovernmenthasrecentlycommitted,throughthe2007BCEnergyPlan13,tocontinuetoworktoliftthefederalmoratoriumonoffshoreexplorationanddevelopmentandsimultaneouslylifttheprovincialmoratorium.

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Somechallengesfacedbythepotentialdevelopmentofnon-renewableoceanenergyaregenerallyapplicabletotheoffshoreareasofthePNCIMA,andmightbebestaddressedattheLOMAandGMAplanninglevels.Thesechallengesinclude:

•Potentialenvironmentalandspeciesimpactsfromnewseismicsurveys(e.g.,noiseimpacts,fishkills,sediment);

•Safetyandsecurityofoceanoil&gasinstallationsduetomajorstormandearthquakeevents;

•Economicandsocialeffectsofacceleratedoilandgasactivitiesoncoastalcommunities;

•Increasedmarinetankerandvesseltraffictocommunitiesreceivingpetroleumproducts;

•ImpactofMPAestablishmentonfuturenon-renewableresourceexplorationanddevelopmentopportunities;

•Potentialincreaseinaccidentaloilspillsfromoperationsandpipelinesandeffectsonmarineenvironment.

ThePNCIMAapproachtointegratedoceanmanagementplanningmaybeofassistanceinintegratinganyfuturedevelopmentintoexistingandfutureuses.

.2.10.Existing.Land.and.Coastal.Plans

SeveralpartsofthePNCIMAhavebeenthesubjectofsignificantplanningeffortinbothterrestrialareasandthecoastalzone,primarilyatthe‘strategic’level.

TheVancouverIslandSummaryLandUsePlan,approvedin2000,14identifiedlandzoning,objectivesandstrategies,andcoastalareasforfutureplanning.A2001CentralCoastCoastalZoneStrategicPlan15wasapprovedinprinciplebytheBCgovernment,andincludedobjectivesandstrategiesformarineprotection,marinebiodiversity,andcoastaluses.CoastalplansforQuatsinoSound,theNorthIslandStraitsandJohnstone-Buteareas(2002-2005)16werecompletedbetween2002and2005,toassisttheprovincialgovernmentindecisionsonapplicationsforforeshoreandnearshoretenures.A2006CoastLandUseDecision17wasbasedonthe2005CentralandNorthCoastLandandResourceManagementPlans(LRMPs).TheLRMPsandCoastDecisionestablishedlandusedesignations,newconservanciesandecosystem-basedmanagement(EBM)areas.Objectivesandstrategieswerealsoincluded.Manyofthenewconservancieshaveamarinecomponent,withadditionalmarineforeshoreareasstilltobeadded.A2007HaidaGwaiiStrategicLandUseAgreement18establishedobjectivesforecosystem-basedforestmanagementandincreasedprotectedareasonHaidaGwaiitonearly50%oftheland.Itcommittedtoamarineplanninganalysis(nowunderway)todeterminehowfarintothecoastalzonethenewconservanciesshouldextend.

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ManyFirstNationsinthePNCIMAhavealsoembracedformalplanningintheirtraditionalterritories.Thisincludesthe2000Kitasoo/XaixaisLandandResourceProtectionandManagementPlan.19OtherFirstNationshaveterrestrialplansunderwaytoaddressforestresourceandculturalvaluemanagement,inaccordancewithlanduseagreementsandprotocolswiththeBCgovernmentontheCentralandNorthCoastLRMPs.20ManycoastalFirstNationshavenowinitiatedmarineandcoastalplans,includingtheHaida,Haisla,Heiltsuk,Wuikinuxv,Gitga’at,Metlakatla,Gitxaala,Kitsumkalum,andKitselas.

Localgovernmentshavealsodevelopedofficialcommunityplans,zoningby-laws,andmappedimportantareaswithintheirboundaries.TheseincludetheStrathconaRegionalDistrict,MountWaddingtonRegionalDistrict,CentralCoastRegionalDistrict,andtheSkeena-QueenCharlotteRegionalDistrict.Somehaveestablishedguidancefordevelopmentsinthecoastalzone.


Thepresenceofexisting,neworongoingplanscreateschallengesintheareacoveredbytheplans.ConsequentlytheCMAlevelofplanningiswherethesemightlikelybeaddressed.Theyinclude:

•Reliabilityofolderplansinformationandrecommendationsinlightofnewerinformation,governmentpolicychangesandshiftsincommunitypreferences;

•Emergenceofnewoceanusesandactivitiesthatmayconflictwith,orareabsentfromexistingcoastalplanningrecommendations(e.g.,wind,wave,tidalpower);

•Reconcilingissuesofscalebetweentheplansandplanningareas;

•ThecomplexitiesoftryingtointegratePNCIMArecommendationswiththoseofexistingandproposedterrestrialandcoastal/marineplans.

ThePNCIMAintegratedoceanmanagementplanningapproachprovidesanexcellentopportunitytoupdateandintegratetheseplansandbuildupontheiroutcomes.Itoffersthechancetofullyintegrateterrestrialandmarineplansandtointegrateobjectivesfromplansbydifferentgovernments,andhasthepotentialtoincreasecollaborationinfutureCMA-levelplansorplanupdates.Itwillprovideincentiveforcollaborativedecision-makingamonggovernmentsonusesandactivitiesthatrequiremulti-jurisdictionapprovals.

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Marine Environm

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3.0. MARINE.ENVIRONMENT..&.CULTURE.ISSUES.Chapter 3.0 outlines seven issues associated with the marine environment and culture within the PNCIMA. Each section generally describes the issue, stating what it is, why it is important, current status, and how it is administered. Each section includes an indication of challenges, and the geographical extent of the challenges within the PNCIMA. The sections conclude with a brief indication of the planning level(s) that may be appropriate for dealing with the issue, and the opportunities that an integrated management approach provides to address the issue and its challenges.

.3.1. Marine.Protection.Tools.

Avarietyofmarineprotectiontoolshavebeenusedtoestablishandprotectseasurface,watercolumn,seabed,and/orassociatedplantandanimallife,recreational,scientific,culturalandhistoricalfeaturesbylimitingorrestrictingactivitiesinthearea.InPNCIMA,differentprotectiontoolshavebeenestablishedorproposedforsuchareasas:uniquecoastalinlets,baysorchannels;representativemarineareas;boathavenswithimportantanchorages;marine-orientedwildernessareas;culturalheritagefeatures;criticalspawninglocationsandestuaries;species-specificharvestingrefuges;seabirdcolonies;ecologicallyandbiologicallysignificantareas;andecologicallysignificantspecies.Areasformarineprotectioncanbedesignatedunderavarietyoffederalandprovinciallegislativeauthorities,andthetermMPAisusedgenericallyinthisdocument,asopposedtoreferringtoOceans ActMPAdesignations.

FederaleffortstoestablishMPAsaredirectedbya1995federalMarineProtectedAreasStrategy21thatisbasedontheprogramsofDFO,ParksCanadaAgency(PCA)andEnvironmentCanada(EC).TherearecurrentlynoOceans ActMPAsinPNCIMA(theBowieSeamountMPAisinadjacentwaters),butDFOhasestablished59RockfishConservationAreas22(RCAs),someofwhichcouldeventuallybeincorporatedintoaformalMPAnetwork.DFOisalsoconsideringlargeglassspongereefcom-plexesinQueenCharlotteSoundandHecateStraitasapotentialAreasofInter-est(AOI)forMPAdesignation.TherearenoECNationalWildlifeAreas(NWAs),MarineWildlifeAreas(MWAs)orMigratoryBirdSanctuaries(MBSs)inPNCIMAatthistime,althoughayet-undeterminedareaaroundtheScottIslandshasbeenproposedforMWAdesignation.Previousfederal-provincialandPCA-HaidaNationagreementshaveledtothedevelopmentoftheGwaiiHaanasNationalMarineConservationArea(NMCA)proposaladjacenttotheGwaiiHaanasNationalParkReserve.ThisNMCAisadvancedinitsdevelopmentandisexpectedtobeaffirmedunderlegislationinthenearfuture.

TheBCgovernmenthasyettoestablishaformalMPApolicy,buthasmanyprovincialparks,ecologicalreservesandconservanciesinthemarineenvironment.AsignificantincreaseintheseareashasoccurredduetorecentlanduseagreementsintheCentralandNorthCoastandinHaidaGwaii.Someareascouldbenefitfromcomplementaryfederalprotectionandmanagementmeasures.

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ThefederalandprovincialgovernmentshavemadeanumberofsignificanteffortstodevelopajointorcollaborativeMPAstrategy,goingbackto1995.A2004Canada-BC Memorandum of Understanding Respecting Implementation of Canada’s Oceans Strategy on the Pacific Coast of Canada23ledtoadraftsub-agreementonMPAs.AlthoughthisMPAsub-agreementremainsunsigned,federalandprovincialagencieshavecontinuedtoworktogether,andhaveproducedadraftimplementationplanforevaluationofexist-ingMPA,aswellasananalysisofgapsinexistingMPArepresentationandmanage-menttools.FirstNationsandstakeholdershaveyettobeengagedinthisinitiative.

ThefederaltimetableforcreationofadditionalMPAsisbasedoninternationalcommitments,whichincludeatargettoestablishanetworkofmarineprotectedareasby2012.24In2008,thefederalgovernmentalsocommittedtoestablishninenewMPAs,includingsixOceans ActMPAs,acrossCanadaby2012.


ChallengesfacingMPAidentificationandestablishmentinPNCIMAmightbebestaddressedattheLOMAandGMAlevels,andinclude:

•Fullyaccountingforandincorporatingcostsandbenefits,includingsocioeconomicvalues,intoMPAselectionanddecision-making;

•Achangeinfactorsinfluencingpreviousidentificationofcandidates,warrantingneworlargerareas(e.g.,fisherypopulationdecline,climatechangeeffects,etc.);

•Incorporatingthefluidanddynamicnatureofecologicalsystemsandhumanuseimpacts;

•RelationshipandvalueofPNCIMAprocess-generatedMPAproposalstothebroaderBCcoastandnationalMPAnetwork;

•Abilitytoidentifyandimplementnecessary‘interimprotectionmeasures’whilethePNCIMAplanundergoesdevelopment,approval,andimplementation;

•Concernsaboutfuturezoningandmanagementrestrictionsoncurrentusesandactivities;

•InvolvementoffisheriesandotherstakeholdersandFirstNationsintheMPAselectionprocess.

ThePNCIMAintegratedoceanmanagementplanningprocessprovidesanopportunitytoimplementthefederalMPAStrategy,whichcommitstousingintegratedmanagementplanningastheprimevehicleforMPAsiteidentification,andtodevelopmechanismsorproceduresforcollaborationwithotherjurisdictions.Anopportunityalsoexiststodiscussandgainsupportforexistingcandidatesandareasofinterest(suchasScottIslands,andHecateStrait/QueenCharlotteSoundglassspongereefs),andtoidentifynewareasforfurtherconsideration.ThePNCIMAprocesswillalsocontributetotheestablishmentofanMPAnetworkfornortherncoastalwaters.Itcanassistinpublic,communityandFirstNations’consultationforsuchareasbeforetheirlegalestablishment.

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3.2.Cultural.Resources

CulturalresourcesinPNCIMAareheritagefeaturesthatreflectthecultureofpastandexistingaboriginalandnon-aboriginalsociety.Theycanbegroupedintothreecategories:archaeologicalsites,FirstNationstraditionalusesites,andhistoricsites.Insomesituationstheycanbefoundtogether.

Archaeologicalsitesarethosewhichshowphysicalevidenceofpasthumanactivity,suchasoldburial/grave/internmentareas,oldvillagesites,shellmiddens,housedepressions,culturallymodifiedtrees(CMTs),pictographsandpetroglyphs.AllsitesareconsideredFirstNationsinorigin.FirstNationstraditionalusesitesincludegeographicallydefinedsites(onlandorwater)usedtraditionallybyaboriginalpeople.Thesesitesmaylackthephysicalevidenceofhuman-madeartefactsorstructures,yetmaintainculturalsignificancetoexistingcommunities.Examplesincludefishingsites,huntingcamps,traditionaltrails,berrypickingareas,andlegend/sacredsites.Historicsitesidentifysignificantpost-contactheritageeventsandmaybenon-abo-riginaloraboriginalinnature.Theseincludehistoriccannerysites,abandonedcommunities,shipwrecksandformermilitaryinstallations.

CulturalresourcesareanimportantissueforPNCIMAbecauseoftheireconomic,socialandcultural,aswellaslegalsignificance.Economically,historicalsitesandsomearchaeologicalsitesprovidetourismopportunitiesandrelatedemployment,suchasHaidavillagesites,abandonedcommunitiesandshipwrecks.Fromasocialviewpoint,culturalresourcesprovideasenseofheritageandtraditionforallresi-dents,andafoundationforcontinuingculturalpracticesofFirstNations,whichincludefood,socialandceremonialpractices,tradewithotherFirstNations,andcontinuationoforalhistory,legendsandfamily/clanrightsandprivileges.Fromalegalperspective,culturalresourcesareimportanttomanyFirstNationsaspartoftheireffortstoconfirmspecificaboriginalrightsinresponsetolandandresourcede-velopmentproposalsbygovernmentandindustry.Assuchtheymaybeacriticalfactorinongoingandfuturelegalclaimstotitleovertraditionalterritoriesandresources.

Informationonculturalresourcesincludeswrittenandoralsourcesontraditionaluse,mappedoverviewassessmentsandmorespecificassessmentsassociatedwithdevelopmentplans.Manyresources,suchasCMTsandmiddensitesarenotfullyprotectedwhenidentified,butareinventoriedandrecordedforFirstNations’evidenceofrightsortitle.ManyFirstNationsinPNCIMAhaveinitiatedorcompletedtraditionalusestudies.Severalarchaeologicaloverviewassessmentshavebeenprepared.However,FirstNationskeepconfidentialthelocationofmanyarchaeologicalsitesduetoconcernsaboutdesecrationoralterationbythegeneralpublic.

MostaboriginalculturalsitesinthePNCIMAarelocatedalongthecoastline,inestuaries,protectedinlets,orheadlandswithprominentviews.Theselocationsreflecttheconnectionofaboriginalpeoplestotheoceanfortransportation,foodsourcesandprotectionfromweatherandinvaders.Sitesreflectdifferentseasonaluses.TherearenumeroushistoricsitesinthePNCIMArepresentingpastindustriesandsettlements,suchasOceanFalls,PortEssington,HospitalIslandandWalesIsland.ManyshipwreckshavebeendocumentedinthePNCIMA,particularlyoffVancouverIsland,andsurroundingHaidaGwaii.Manyhistorical,culturalandarchaeologicalfeaturesandusesarenowrepresentedinprovincialmarineparks,newconservancies,andinGwaiiHaanas.

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ArchaeologicalsitesandhistoricsitesaregenerallyadministeredbytheBCgovern-mentunderkeylegislationandpolicy,notablytheHeritageConservationAct,whichprovidesautomaticprotectionforsomeculturalheritageresources.Manygovernmentdepartmentsfollowconsultationandaccommodationguidelinesforidentifyingandproperlymanagingculturalresources.Formaltreatiesandinterimtreatyagreementsmayalsoincludespecificobligationsforfederalandprovincialgovernmentsforculturalresources(e.g.,Nisga’a).Culturalresourcesinprovincialandfederalparksandconservanciesareadministeredbytheresponsibleagency,oftenincollaborationwithFirstNationsandinaccordancewithapprovedmanagementplans.ManyFirstNationsinthePNCIMAhavelanduseplansandagreementswiththeprovincethatprovidedirectionforthemanagementandprotectionofsitesknowntoeachFirstNation.


Culturalresourcesarepronetoanumberofchallenges,usuallyassociatedwithspecificareasandmightbeaddressedinCMAorGMAplanning.Theyare:

•Potentiallossofarchaeologicalsitesduetoincreasingstormeventsandsealevelriseassociatedwithclimatechange,particularlyintheNorthCoastandHaidaGwaii;

•Lackofformalprotectionofmanyhistoricandarchaeologicalsites,suchasunderwatershipwrecks;

•Lackofinventoriesforsomeareasparticularlyintertidalandunderwatersitessuchasclamgardens;

•Potentialdestructionandlossofarchaeologicalsitesduetoincreasedhumandisturbanceandactivities,andlackofadequatesurveillanceandmanage-ment;

•Encouragingmoreeconomicopportunitiesassociatedwithculturalresourc-es,includingaboriginaltourism,ecotourismanddiving;

•MaintainingandreinforcingAboriginaltraditionaluseandculturalvalues.

ThePNCIMAintegratedoceanmanagementplanningprocessprovidesauniqueopportunityforacollaborativeapproachthatbalanceseconomic,social,andculturalvalueswithcompetingactivities.Itmayyieldstrategiesandactionsforbenefitingfromexistingculturalresources,prioritizingactionsforprotectingandinventoryingknownsites,andrecommendingnewcollaborativemanagementapproaches.

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3.3.Accidental.Marine.Spills

Marinespillsarelargeandsmallpetroleumandchemicalproductspillsintotheoceanfrommarinevesselsormarine-basedinfrastructure,andfromshore-basedfacilities.MarinespillsrepresentanimportantissueinPNCIMAduetotheiradverseenvi-ronmental,community,healthandsocialeffects,whichvaryinaccordancewithtypeofproductspilled,volumeofspill,andlocationofspill.Majorspillshavepotentiallyhighcleanupcosts,maycontaminatelocalseafoodsources,andcreatehumanhealthhazardsalongwithmarinespeciesmortalityandecosystemdamage.Non-petroleumbasedoilspillsfrombulkfreightersloadingandtransitingthePNCIMA(e.g.,Canolaandpalmkerneloils)alsoposeahazard,astheycansmotherlargeareasandaffectfish,invertebrates,marinemammalsandbirds.Thesevegetableoilsarealsoknownfortheirpersistenceinthemarineecosystem.

ThepotentialforamarineoilspillispresentinPNCIMA,andrelatedtothevolumeandnatureofvesseltraffic,locationandproximitytorescuefacilities(i.e.tugs),andthelikelihoodofcollision,groundingorsinking.Thehighestpotentialforpetroleumspillscomesfrombargesthattransportrefinedpetroleumproductstocoastalcommu-nitiesonaregularbasis,orfromsinkingofotherrecreationalorcommercialvessels.ThepossibilityofspillsfromoiltankerstransitingthePNCIMAareaisgenerallylow,astheygenerallyrespecttheVoluntaryTankerExclusionZone(TEZ),main-tainingtheirdistanceapproximately160kilometresormoreoffshore.Shore-basedmarinespillpotentialinPNCIMAisduetoregularpetroleumandchemicalproducttransferbetweenshipsandshore-basedstoragefacilitiesatthelargerfacilitiesinPrinceRupert,KitimatandStewartandtoalesserextentatsmallcraftharbourfacilities.

MarinespillpotentialwillincreaseiftheapprovedLNGprojectandtheproposedEnbridgeoilpipelinesintoKitimatbeginoperations.CondensatesarealreadyshippedintoKitimatbytanker,wheretheyareoffloadedandtransportedbypipelinetotheAlbertaoilsands.Althoughmorevolatilethanmostpetroleumproducts,theyareconsideredhighlytoxic.PotentialmayalsoincreaseiffutureArcticpetroleumdevelopmentoccursandutilizestankersusingWestCoastroutes.ThepotentialimpactofspillsofchemicalproductssuchasLNGismuchlowerandmorelocalizedthanforcrudeandheavyoilproducts.Thelikelihoodofspillsfromoffshoreoilandgasexplorationanddevelopmentfacilitieswillbedeterminedbythefutureofcur-rentprovincialandfederalmoratoriaontheseactivities.

Marinespillissuesareaddressedinthreeways:prevention,preparednessandresponse.Preventionfocusesonactivitiesthatreducetheriskofspillsandmini-mizepotentialimpacts,suchasreducedoildependency,vesseltrafficmanagement,improvedtechnologyandsafetymeasures.Spillpreparednessinvolvesdevelopmentofcontingencyandcleanupplans,riskassessment,mappingofsensitivebeachesandecosystems,andidentificationofappropriatecleanupmeasures.Spillresponseinvolvestheactionstocontainandreduceimpactsofspillswhenandwheretheyoccur.

Thepolluter,orResponsibleParty,isresponsibleforrespondingtoaspillfromaship.Thefirstresponderiswhomeverisclosesttothespillandhastheresources.Onthewestcoast,TransportCanadahascertifiedBurrardCleanOperations(BCO)astheResponseOrganizationwithwhompollutersmaycontracttoaddressmarineoilspills.InPNCIMA,BCOmaycontractthisroleouttolocalcompanies,inaccord-ancewithresponseplansinplaceforeachofNorthVancouverIsland,PrinceRupertandHaidaGwaii.

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Bothfederalandprovincialgovernmentshavemarineoilspillprograms.TheBCgovernmentprogramincludesshorelineinventory,sensitivityassessmentandshorelinecleanupplans,andaMarineOilSpillResponsePlan.25ThefederaloilspillresponseregimedirectsTransportCanadatoleadinplanningandpreventionefforts,whiletheCanadianCoastGuardleadsspillresponseforspillsfromshipsandmysteryspillsinthemarineenvironment.EnvironmentCanadahasanationalcontingencyplanandcoordinatesafederalRegionalEnvironmentalEmergencyTeam(REET)insupportofresponseeffortsbyeithertheResponseOrganizationortheCanadianCoastGuard.CanadaispartytotheCanada-UnitedStatesJointContingencyPlanformarinepollutionincidentsinCanada-UnitedStatescontiguouswaters.BChasamajorcooperationagreementwithnearbyUSstatesthroughthePacificUSStates/BritishColumbiaOilSpillTaskForce.26

Therearemanysmallerspillsthataregenerallyundetected,ordetectedbutnotrespondedtobecauseoftheirsizeand/orlocationorlackofrecoverableproduct.Thesesmallerspillshaveacumulativeimpactthat,coupledwithaccidentalspills,canbemoresignificantintermsofenvironmentaleffectthanthelargermorecatastrophicspills,overthelongerterm.


MarinespillspresentconsiderablechallengesthroughoutthePNCIMAandmightbebestaddressedattheLOMAorGMAplanninglevel.Theseinclude:

•MaintainingahighlevelofpreparednessforresponsetopotentialoilandchemicalspillsinthePNCIMA;

•Levelofcooperationandpreparednessamongindustry,federalandprovincialgovernments,FirstNationsandlocalcommunities;

•Impactofspillsonmarineecosystems,habitats,speciesmortality,humanhealthandsafety.

•Effectsofnewspillsintothemarineenvironmentassociatedwithincreasedvesseltrafficimpacts,particularlyfromPrinceRupertportexpansionandnewproducttrans-shipmentsatKitimat;

•Outdatedriskassessmentsandresponseplansandequipment;

•Maintainingadequatelevelsofenforcementandsurveillanceasadeterrent;

•Educationofindustryandpublic.

Othermarineplanningprocesseshaveprovidedimportantpolicydirectiontogovernmentsonmarinespills,althoughusuallyasstrategiesoractionsunderbroaderecosystemhealthobjectives.ThePNCIMAprocessofferssimilaropportunitiesforpolicyrecommendationsaimedatimprovedpre-vention,preparednessandresponse.Integratedplanningmayalsoserveasacatalystforspillresponsecooperationagreementsamongindustryandgovernmentsthatpromoteeffectivedeploymentofresourcesandpersonnel.

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3.4.Marine.Pollution

Marinepollutionreferstothecontaminationofmarineecosystemsandspecieshealthfromawidevarietyofbiological,chemical,hydrocarbonandorganicdischargesonseaorland(pointsource)andfromnon-specificlandlocations(non-pointsource).KeycontaminantsaffectingthePNCIMAareurbanandruralsewage,persistentorganicpollutants(POPs),heavymetals,shore-basedandship-sourcedischargeofoilsandhydrocarbons,nutrients,contaminatedsediments,andlitter.Thesecon-taminantsenterthemarineenvironmentthroughatmosphericdischarge,streamdischargeandrunofffromland,andfromdirectdumpingfromoceanandland-basedactivities.Shore-basedandshipmarinespillsaredescribedinmoredetailintheprevioussectionofthisreport.

Point-sourcepollutioncomesfromsuchactivitiesinthePNCIMAaslogdumpsandsortinggrounds,pulpandpapermilldischarges,pastandpresentminingoperations,oceandumpingofdredgedandcontaminatedmaterial,ship-sourcedischargeofwasteoils,urbanandvesselwastewaterandsewage,wastedisposalatsea,fishfarmsandfishprocessingplants,airandwasteemissionsassociatedwithmarinevesselsandportoperations,andrecreationalactivitiesonbeachesandforeshore(e.g.,kayakerstop-overs).Non-pointsourcepollutionoccursasaresultofland-basedactivitieswithinandoutsidethePNCIMA,andincludeswastewater,run-offandsewagefromurban,industrialandagriculturalactivities.

Sewageandrun-offsystemsfromlargercommunitiesinthePNCIMAcanincludeatoxicmixofnutrients,oilandgrease,viralandbacterialpathogens,suspendedsolidsanddissolvedmetals.Non-pointsourcesinruralareascanincludeanimalwastesfromagriculturallandsandleakagefromsepticsystems.Non-pointsourcesofsewagegenerallycarrynutrientsandviralandbacterialpathogens.POPsarechemicalsthatre-mainintactintheenvironmentforlongperiods,generallyassociatedwithpesticidesandpreservatives.Mosthavebeenbannedorrestricted(e.g.,DDT,PCB,dioxins)butpersistinthePNCIMAandcontinuetobetransportedgloballyintheatmos-phere.Heavymetalsincludethosetoxicinexcessamounts(e.g.,copper,zinc,iron)ortoxicatlowlevels,andenterthemarineenvironmentbystreams,atmosphereanddirectrunoff.OilandhydrocarbonsenterthePNCIMAthroughchronicsmallspillsanddischargesfrommarineandland-basedsources,includingroadrunoff,discardedusedoil,vehicleandequipmentleaksandotherland-basednon-pointsources.Nutri-entsourcesinthePNCIMAincludeatmosphericdepositionandsurfacerunoff.Sedimentsbuildingupontheoceanfloorandcanoftenabsorbandstorecontaminants,whicharetransportedorconsumedbyorganisms,enteringthefoodchainanddispersingtootherareas.Marinelitterfrommarinevesselsandland-basedsourcesincludescans,bottles,plastics,tiresandfishinglineandcanpersistinthemarineenvironment.

Thesecontaminantscanbetoxictomarineorganisms,fishandmammals,hazardoustohumanhealth,andcanaffectrecreation,tourismandaestheticvalues.POPssuchasPCBsareknowntoaccumulateinthefattytissueoflivingorganismsandcanbetoxictomarinemammalsandhumans.Heavymetalsandcompoundsenteringthemarineenvironmentmayposearisktohumanhealththroughtheconsumptionofseafoodfromcontaminatedareas.Oilscanfoulmarinelife,taintseafood,con-taminatewatersuppliesandsmotheraquaticcommunitiesandhabitat.Nutrientslikenitrogenandphosphorusstimulateplantgrowthandreproduction,butwhen

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dischargedincoastalareascanover-stimulatemarineplantandalgaeproduction,leadingtoeutrophication.Excessnutrientsfromnon-pointsourcescancausedete-riorationofwaterqualityinpoorlyflushedareasandclosureofshellfishharvestinginmorepopulatedareas.Contaminantsinsedimentsmaybepassedupthefoodchainandbeaconcerntolargeraquaticorganisms,marinemammals,birdsandhumans.

Responsibilitiesforpointandnon-pointdischargeandimpactcontrolrestwithnumerousfederal,provincialandlocalgovernmentauthoritiesinvolvedinhumanhealth,safetyandenvironmentalprotection.KeyfederallegislationistheCanadian Environmental Protection Act(CEPA1999),theFisheries Act,theMigratory Bird Con-vention ActandtheCanada Shipping Act(CSA).Aspartofaninternationalinitiative,CanadahasdevelopedaNationalProgrammeofActionfortheProtectionoftheMarineEnvironmentfromLand-basedActivities(NPA).Implementationtodatehasfocusedonregionally-based,multi-partner,action-orientedprojects(i.e.,activitieswithintheGeorgiaBasinActionPlan)withnationalgoalsinmind.TheNPAhasachievedincreasedcollaborationandpartnershipsbetweenalllevelsofgovernment,industry,organizationsandthepublic,inordertoaddressland-basedsourcesofmarinepollution.Workisunderwaytoreviewthecurrentapproachinlightofrapidlyevolvingcoastalandmarinegovernanceapproaches.


MarinepollutionposesmanychallengesthroughoutthePNCIMAbutparticularlyinthecoastalzonewheretheeffectsofland-basedpollutionaremoststronglyfelt.TheymightbebestaddressedinLOMAorGMAplanningandaresummarizedas:

•Impactofmarinepollutiononmarinespeciespopulationsandhealth,andhumanhealth;

•Potentialincreaseinwater,airandnoisepollutionfromincreasedrecreationalboating,shippingandvesseltraffic,increasedindustrialandcommunitydevelopment;

•Impactsofmarinepollutiononmarinefaunaincluding,migratorybirds,seamammals,shellfishandfinfishaquaculture;

•Impactsofmarinefacilityimprovements,suchasdredging;

•InabilitytodirectlycontrolatmosphericpollutionsourcesfromoutsidePNCIMA;

•Managingthecumulativeeffectofmarinepollutionfromallsources;

•Compoundingeffectonecosystemsandspeciesofmarinepollutionstressorscombinedwiththestressofclimatechangeeffects.

AnintegratedoceanmanagementplanningapproachprovidesanopportunityinthePNCIMAtodevelopacollaborativeandcomplementaryapproachamongvariousauthoritiesandjurisdictionsforreducingmarinepollution.Itmayleadtoidentificationofremediationprioritiesandprogramsforpollutedareas,improvedmonitoringprograms,andrecommendationsaimedatreducingpollutionlevelsfromvarioussourcesinthePNCIMA.

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3.5.Marine.Climate.Change.Effects

TheobservedandpredictedeffectsofglobalclimatechangeonthePacificOceanincludesealevelrise,oceanwarming,oceanacidification,reductioninmixingandoxygenationofwaters,creationofdeadzones,andshiftsinmarinespeciesdistributions.Theseeffectsarecompoundedbyclimatechangeonlandaswellasintheoceans.

ClimatechangeeffectsinthePNCIMAwilllikelyposesignificantchallengesandpresentsomeopportunitiestomarineecosystems,species,economicactivities,socialandculturalfabric,andcommunityinfrastructure.Forexample,currentfishspecies(e.g.,salmon)maymovenorthwardtocoolerwaters,butnewcommercialspeciesmaymigrateintoPNCIMA.Commercialshellfishspeciesmayexpandtheirrangeofproductivitynorthward,butincreasedacidityoftheoceancouldreducegrowthratesandleadtothedisappearanceofmanykeyspeciesofinvertebrates,whichplayanumberofrolesinmarineecosystems.InsomepartsofthePNCIMA,sealevelriseincombinationwithstormeventsmayincreaseerosionofcoastalinfrastructure,requiringexpensivereconstruction.Coastalarchaeologicalsitesmaybelost,andproductive,low-lyinghabitatmaybesubmergedoraltered.

UncertaintyexistsaboutpotentialclimatechangeeffectsinthePNCIMAduetoitsdynamicoceanographicconditionsandlackofbasicinformationaboutmanyocean,ecosystemandspeciescharacteristics.The‘thresholds’totriggerchangesarenotwellknownforthePNCIMA.Publicunderstandingofclimatechangeislimitedandoftendisplacedbymorepressingconcerns.InadditionsomeeffectsaremorelikelyinsomepartsofthePNCIMAthanothersandmaybemaskedbynaturalclimatecycles.

Mostgovernmentactionandcommitmenthasfocusedon‘mitigation’actionsaimedatreducingGHGemissions.However,evenwithdramaticactiontoreduceemissions,theglobalclimatewillcontinuetochangeinthenexttwodecadesinresponsetopastemissions.Manyscientistsandoceanmanagersarepressingfor‘adaptation’actionsthatwillallowecosystems,species,economicsectorsandcommunitiestoadjustandrespondtothechangesthatwilltakeplaceintheoceans.Adaptationmeasurescanincluderiskassessmentsbyarea,creationofMPAstomaintainecosystemfunctionanddiversity,reductioninnon-climatestressorsonecosystems,suchasover-harvestingandhabitatlossfromdevelopment,andreductionofland-basedpollution.


ChallengesfromclimatechangeeffectsexistthroughoutPNCIMAandmightbestbeaddressedinLOMAandGMAplanning.Theseinclude:

•Lackofpublicunderstandingofclimatechangeeffects;

•Lackofsustainedpoliticalwillandfundingforclimatechangeactions;

•Changestocommercialspeciesdistributionandviabilityofrelatedindustries;

•Increasedthreatstocommunityinfrastructure,andincreasedcostsofmaintenance;

•LossofimportantFirstNationsarchaeologicalandculturalsites;

•Lossordestructionofkeyhabitatforfish,birdsandotherspecies;

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•Potentialeffectsontheaquacultureindustry,suchasincreasedoceanacidification,hypoxia,algaeblooms&watertemperature;

•Managementofhumanstressorstooffsetstressesgeneratedbyclimatechange,includingvesseltrafficandland-basedpollution,andaccidentalspills.

ThePNCIMAintegratedoceanmanagementplanningprocessprovidesanopportunitytodevelopclimatechangemitigationandadaptationactionsincollaborationwithgovernmentsandparticipants,forawidevarietyofusesandactivities,includingfisheriesandaquaculture.Italsoprovidesanoppor-tunitytofostercollaborativeeffortstosetasidekeyecosystemsandhabitatsasMPAsforspeciesadaptationawayfromhumanstressors.

.3.6.Aquatic.Invasive.Species

Aquaticinvasivespeciesarenon-nativespecies,whoseunintendedoruncontrolledintroductionaffectsmarineecosystemsandnativespecies,theeconomyand/orhumanwell-being.Aquaticinvasivespeciesthriveintheabsenceoftheirnativepredators.HarmfulinvasivespecieshavebeenresponsibleforsignificantdevastationofsomenativefishspeciesandfisheriesacrossCanada.Annually,theproblemcostsbillionsofdollarsinlostrevenueandcontrolmeasures.

Todate,anumberofharmfulinvasivespecieshavebeenidentifiedincoastalwatersalongBC,includingtheNorthAmericangreencrab(Carcinus maenus),varnishclam(Nuttallia obscurata),acolonialtunicate(Didemnum vexillum),&Japaneseoysterdrills.ThegreencrabisanefficientpredatorandcolonizerthatthreatensPacificcoastshellfish.Japaneseoysterdrillsboreholesintoyoungoystersandfeedonthem,causingsignificantdamagetotheoysterindustry.

AquaticinvasivespeciesposeathreatinthePNCIMAduetothepresenceofpathwaysthatallowtheirentry.SignificantpathwaysinthePNCIMAareshipping,recreationalandcommercialboating,theuseoflivebait,livefoodfish,andunau-thorizedintroductionsandtransfersofspecies.Theshippingpathwayisconsideredthelargestsinglesourceofnewaquaticinvasivespecies.BallastwatertakenoninforeignportsforshipstabilityandsafetyatseaisdischargedinCanadianwaters,alongwithundesirableforeignspeciesrangingfrombacteriatolargerorganisms.Insufficientawarenessoftheissuealsocompoundstherisk.

Numerousjurisdictions,fromthelocaltotheinternationallevel,playaroleinpreven-tion,monitoringandmanagementactivities.Withinthefederalgovernment,primaryre-sponsibilityrestswithDFOandEC,butmanagementactionscanalsoinvolveTransportCanadaandotherdepartments.Provincialandterritorialgovernmentssharetherespon-sibilitywithindustry,non-governmentalorganizations,FirstNationsandstakeholders.TheCanadianActionPlantoAddresstheThreatofAquaticInvasiveSpeciesoutlinesanationalapproachformanaginginvasivespecies.

TheIMOadoptedaConventionfortheControlandManagementofShips’BallastWaterandSedimentsin2004.TheConventionsetsstandardsforacceptablenumbersoforganismstobepresentinballastwaterandestablishesatimetableforcompliance.TransportCanadahasproposedrevisionsoftheCanada Shipping Act Ballast Water Regulationstoreducepotentialforintroductionofinvasivespecies.ANationalCodeonIntroductionsandTransfersofAquaticOrganismsgovernsauthorizedintroductions,whichcanbemadeforsuchpurposesasaquaculture,increasingfishstocks,andbiologicalcontrol.

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Preventionofharmfulnewinvasionsisthefirstpriority.Oncespeciesareestablished,thetoolsusedtomanageinvasivespeciesmustbecarefullyanalyzedforeffective-ness,costs,andpotentialimpactontherestoftheecosystem.Forexample,effortstostemthespreadofaspeciesmayrequiretheuseoftoxicchemicals,hampertradeincertaincommodities,orincreaseshippingcosts.


HarmfulaquaticinvasivespeciesrepresentachallengeacrossthePNCIMAandmightbeaddressedattheLOMAplanninglevel.Potentialchallengesare:

•Increasedintroductionduetoexpansionofshippingactivities,andthroughoceanclimatechangesthatinducemigrationofnon-nativespeciesintothePNCIMA;

•Potentialeconomicimpactonexistinganddevelopingshellfishaquaculture;

•Potentialimpactonmarineecosystemsandbiodiversity.

Anintegratedoceanmanagementplanningprocessmayallowdifferentmarineusersandactivitygroupstocollaborateonevaluatingrisk,identifyingpreventativemeasures,anddeterminingrolesthatcanbeplayedtopreventorreducetheriskofinvasivespeciesintroductioninthePNCIMA.

3.7.Species.at.Risk.and.Species.of.Concern.

Speciesatriskandspeciesofconcernareocean-dependentbirds,fishandmammalsofficiallyrecognizedasrare,endangered,threatenedorvulnerableatfederal,provin-cialorinternationallevels.Theyaretypicallymanagedinaspecialwayand/orafford-edprotectionbygovernment,usingsuchlegislationasthefederalSpecies at Risk Act (SARA),Migratory Birds Convention Act,Fisheries Act,andtheprovincialWildlife Act.

Speciesatriskorofconcernareimportantforanumberofreasons.Theyareimpor-tantforbiodiversityofmarineecosystemsandmaintenanceofecosystemhealthandbalance.Theyareoftenthebasisofcommercialrecreation,tourismandsightseeingopportunities,and,insomecases,importantsymbolsofthePacificCoast.

Thirty-threemarinebirdspeciesorsubspeciesoccurringinPNCIMAhavebeenlistedasspeciesofconservationconcernbytheBCConservationDataCentre,bytheCommitteeontheStatusofEndangeredWildlifeinCanada(COSEWIC),bySARAand/ortheInternationalUnionforConservationWorldConservation(IUCN).ThePNCIMAcontainsmostofthemajorseabirdcoloniesthatoccurinBC,suchasintheScottIslands,HaidaGwaii,QueenCharlotteSound,QuatsinoSound,andnearBrooksPeninsula.Asaresult,95%ofallofBC’sbreedingseabirdsoccurinthePNCIMA.27Includedare:alloftheknownnestingareaswithinCanadaofAncientMurrelets(mostofwhichoccuronHaidaGwaii);allofBC’spopulationofCommonMurres(TriangleIslandandKerouardIslands);morethan99%oftheBC’snestingCassin’sAuklets,RhinocerosAuklets,Fork-tailedStorm-petrels,andHornedandTuftedPuffins;97%oftheprovince’sLeach’sStorm-petrelsand85%ofitsnestingpopulationofPigeonGuillemots.SmallnumbersofGreatBlueHeronhavebeennotedintheBroughtonArchipelagoandSkidegateInlet,andobservedinassociationwithreefsandkelpbedsalongtheCentralandNorthCoast.

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Ofmorethantwenty-fivespeciesofmarinemammalsandreptilesfoundwithinthePNCIMA,thirteenarelistedunderSARA.OftheSARA-listedspecies,blue,fin,andseiwhalesarefoundalongthewesternboundaryofthePNCIMA.DixonEntranceisanimportantareaforblue,humpback,andresidentkillerwhales.TheeastcoastofHaidaGwaiiisimportantforgraywhalesandleatherbackturtles,aswellasharbourporpoises.Themainlandcoastisimportantforresidentkillerwhales,andportionsofthisareaareimportantforhumpback,gray,andfinwhales,andseaotters.SeaotterswerereintroducedtothePacificCoastonthenorthwestcoastofVancouverIsland,andareexpandingtheirhabitat.ThePNCIMAcontainsthethreemainStellersealionbreedingrookeriesonthecoast,andforaginghabitat.Fishspeciesofconservationconcernareprimarilyinshorerockfish,forwhichDFOhasestablishedanumberofRockfishConservationAreastoencouragepopulationrecovery.

EC’sCanadianWildlifeService(CWS)isresponsiblefortheprotectionandmanage-mentofmigratorybirds,nationallyimportantwildlifehabitat,andendangeredspecies.UnderSARA,DFOisresponsiblefortheprotectionandrecoveryofaquaticspeciesatriskandParksCanadaAgencyisresponsibleforthemanagementandrecoveryofspeciesfoundinnationalparksandlandsadministeredbytheAgency.DFOmanagesmarinemammalsundertheFisheries Act.Federalandprovincialgovernmentagencies,industryandnon-governmentalorganizationsaregenerallyinvolvedinhabitatprotec-tion,recoverystrategiesandplans.Strategiesforseveralspeciesareinplaceorbeingdeveloped,includingthosefornorthernandsouthernresidentkillerwhales,blue,fin,seiandrightwhales,seaottersandleatherbackturtles,andMarbledMurrelet.


SpeciesatriskandspeciesorconcernfaceanumberofmanagementchallengesthroughoutthePNCIMA,butespeciallyintheidentifiedareasofcriticalorimportanthabitat.TheymightbeaddressedatLOMA,GMAandCMAlevelsandinclude:

• Mortality,sub-lethaleffects,andhabitatdegradationresultingfromhumanactivities,includingoilandchemicalspills,pollutantsandcontaminants,fisheriesby-catch,competitionforpreywithfisheries,illegalharvesting,shipstrikes,seismicactivities,andentanglementingearandplastics;

• Potentialadverseimpactofeco-tourismoperationsthroughnoise&disturbance;

• Potentialimpactsfromnon-renewableenergyexplorationanddevelopmentactivities;

•Criticalhabitatlossduetorookerypredators(e.g.,rats,raccoons),landdevelopment,andspreadofnon-nativevegetation;

• Climatechangeeffectsonbreedingcycles,habitats,foragingsuccess,preysources,predators,foodabundanceanddistribution;

• Impactsonspeciesthatslowpopulationrecoveryandhealth,suchashuman-generatedmarinenoiseanddisturbance,vesseltrafficincreasesandaccidentalspillsthataffectmarinewaterqualityandmarineecosystems.

ThePNCIMAintegratedoceanmanagementplanningapproachprovidesaforumtodeveloppoliciesandstrategiestoaddresstheseissuesandsupportrecoveryefforts.Acollaborativeapproachmaysetprioritiesforrecoveryac-tions,identifyprotectionmeasuresforcriticalhabitatandusemigrationandbehaviourpatternsofspeciestominimizeconflictswithhumanactivities.

Marine Environm

ent & C

ulture Issues

32

Jurisdictional and

Legal C

ontext

4.0. JURISDICTIONAL.&.LEGAL.CONTEXT

4.1.PNCIMA.Collaborative.Governance

Theconsiderableoverlapofjurisdictionandmanagementauthorityontheseasur-face,watercolumnandseabednecessitatesaconcertedeffortbyfederal,provincialandFirstNations’governmentstoachievemutuallydesired&priorityobjectivesforthePNCIMA.

Whilethefederalgovernmenthasjurisdictionovertheseasurface,watercolumn,andseabedfromthehightidemarktoCanada’s200nauticalmilelimit,courtdecisionshavefoundBCtohavejurisdictionovercoastalwaters,includingintertidalareasandinlandwaters.Theseintertidalandinlandwatershavebeenfurtherde-finedbythecourtstoincludethestraitsandwaterbodiesbetweenmainlandcoastandtheVancouverIsland,andareasbetweenheadlands.Thisjurisdictionincludesanywatersurfaceoccupiedbyusesthatareaffixedtoprovincially-ownedseabed.ProvincialjurisdictionoverthewatersofDixonEntrance,HecateStraitandQueenCharlotteSoundhasnotbeenconfirmed.

Asaresult,bothprovincialandfederalagencieshavemanyoverlappingrolesandresponsibilities,whichrequire‘harmonization’ofeffort.Thishasbeenevidencedinanumberofpriorandproposedagreementsonoceanmanagementandplanningaswellasresourcedevelopment,particularlythe2004Memorandum of Understanding regarding Implementation of Canada’s Oceans Strategy on the Pacific Coast.28

Inaddition,mostcoastalFirstNationsinthePNCIMAhaveneversignedtreatiesorcededtheiraboriginaltitleorrightsoverlandandresourcesintheirtraditionalterritories,whichinsomecasesextendintotheoceanareas.AnumberofFirstNa-tionsareinlitigationonlandandresourcejurisdiction,andothersareengagedinthetreatyprocesswithCanadaandBC.ThesecasesandtreatydiscussionsreinforcetheneedforgovernmentstocollaboratewithFirstNationsinthePNCIMA,ashasbeenevidentinthedevelopmentoftheapproachtothePNCIMAintegratedoceanmanagementplanningprocess.

4.2.First.Nations’.Rights.and.Relationships.

InCanada,section35ofthe1982Constitution Actrecognizesandaffirmsaspectrumofaboriginalandtreatyrightsandprovidesconstitutionalprotectiontotheserightsandtitle.Initslandmark2004decisioninHaida v. BC,theSupremeCourtofCanadaemphasizedthatthehonouroftheCrownisalwaysatstakeinitsdealingswithaboriginalpeoples,andthatthehonouroftheCrownmayrequiretheCrowntoconsultwithandreasonablyaccommodateaboriginalinterestspendingresolutionofclaimedaboriginalrightsandtitle.

Accordingly,therelationshipbetweengovernmentsandFirstNationsinthePNCIMAisdifferentthanthatbetweengovernmentsandstakeholders.ThisspecialrelationshiphasbeenreinforcedbytheOceans Actandrelatedpolicy,whichaffirmsadesiretoen-gageandcollaboratewithFirstNationsinoceandecisionsandintegratedmanagementplanningprocesses.

CanadaandFirstNationseachbringauthoritiesandmandatestothePNCIMAinitia-tivethattheothermayrespectandbenefitfrom.ThePNCIMAprocessrepresentsanopportunitytoleadCanadainimplementingamodelforintegratingbroaderaboriginalrightswithinocean-relatedgovernancemechanisms.

33

Conclusion

5.0. CONCLUSIONThisdiscussionpaperhasidentifiedseventeenmarine-relatedissuesforinclusioninintegratedoceansmanagementplanningwithinthePNCIMA.Somemayberelevanttopicsforregionallargeoceanmanagement(LOMA)planning,whileothersmaybemoreappropriatelyaddressedinsub-regionalgeographicmanagementarea(GMA)plansorlo-calcoastalmanagementarea(CMA)plans.Someissuesmaybedealtwithatallplanninglevels,withtheleveloftreatmentreflectingthescaleandnatureoftheplanse.g.,broadpolicyattheLOMAlevel,andmorespecificguidelinesandareadesignationsattheCMAscale.

TenissuesarecategorizedasMarineActivityandUseIssues.Challengesassociatedwiththeseissuesincludecompetitionandconflictamongdifferentusesandactivities,theirpotentialimpactonthemarineenvironmentandspecies,theirsustainabilityasabasisforeconomicactivity,andchangesinecosystemsandspecies.SevenissuesareidentifiedasMarineEnvironmentandCultureIssues.Challengesassociatedwiththeseissuesincludeadequateprotectionandmanagementofecosystemsandspecies,riskassociatedwithincreasedmarineactivitiesanduses,andadequacyofpolicies,plansandprogramsformitigationandadaptationtopotentialeffects.

Theintegratedmanagementprocessprovidesanexcellentopportunityforfederal,provincial,FirstNationsandlocalgovernmentsandstakeholderstoaddresstheseissues.Environmental,social,culturalandeconomicoutcomesmayinclude:

•Reductioninconflictsandcompetitionbetweenusergroupsandactivities;

•Ensuringthatactivitiesaresustainableandsupportcoastaleconomies;

•Identificationof‘bestmanagementpractices’formarineactivities;

•Anintegratedreviewofproposedmarinetransportationincreases;

•Spaceandtime-relatedallocationsofmarineareasforuses,activitiesand/orprotection;

•Integrationofexistingterrestrialplanswithadjacentmarineplansandupdatingofexistingcoastalplans;

•DevelopmentofsiterecommendationsforanMPAnetwork;

•Identificationofsensitiveecologicalareas;

•Improvementofspillprevention,preparednessandresponse;

•Pollutionpreventionandreductionmeasures;

•Developmentofclimatechangeadaptationactions;

•Identificationofmeasurestoreduceinvasivespeciesintroductions;and

•Developmentandsupportforspeciesatriskrecoveryefforts.

Akeycommitmentinintegratedmanagementplanningprocessesistopromoteintegrationofexistingmanagementstructuresandprocesses,aswellastodevelopmechanismsforgreatercollaborationandparticipationinregulatorydecisionsbyallparticipants.Thecon-siderableoverlapofjurisdictionandmanagementauthorityinthePNCIMAnecessitatesaconcertedeffortbyallgovernmentstoachievemutuallydesiredandpriorityobjectivesincollaborationwithstakeholders.ThePNCIMAintegratedoceanmanagementplanningprocessalsorepresentsanopportunitytodevelopaneffectivemodelforintegratingbroaderFirstNationsrightswithinocean-relatedgovernancemechanisms.

34

ANNEX.1.BOUNDARy.OF.THE.PNCIMA.AREA

Annex 1

35

1GovernmentofCanada,1997.Oceans Act (1996, c.31),enactedJanuary31,1997.Ottawa,Ontario,Canada.Seehttp://www.dfo-mpo.gc.ca/oceans-habi-tat/oceans/ri-rs/cos-soc/pdf/cos-soc_e.pdf

2FisheriesandOceansCanada,2002.Canada’s Oceans Strategy.Seehttp://www.dfo-mpo.gc.ca/oceans-habitat/oceans/ri-rs/cos-soc/pdf/cos-soc_e.pdf

3FisheriesandOceansCanada,2002.Policy and Operational Framework for Integrated Management of Estuarine, Coastal and Marine Environments in Canada.Seehttp://www.dfo-mpo.gc.ca/oceans-habitat/oceans/ri-rs/cosframework-cadresoc/pdf/im-gi_e.pdf

4FisheriesandOceansCanada,2005.Oceans Action Plan.Seehttp://www.dfo-mpo.gc.ca/oceans-habitat/oceans/oap-pao/pdf/oap_e.pdf

5FisheriesandOceansCanadaandFirstNationsofthePacificNorthCoast,December11,2008.Memo-randum of Understanding on Pacific North Coast Integrated Management Area Collaborative Oceans Governance (website).Seehttp://www.dfo-mpo.gc.ca/media/npress-communique/2008/pr29-eng.htm

6FisheriesandOceansCanada,OceanHabitatandEnhancementBranch,2007.Marine Use Analysis of the Pacific North Coast Integrated Management Area.CanadianTechnicalReportofFisheriesandAquaticSciences2677.Seehttp://www.dfo-mpo.gc.ca/Li-brary/332374.pdf

7CanadianCoastGuard,Tanker Exclusion Zone (website),2001.http://www.ccg-gcc.gc.ca/e0003909

8FisheriesandOceansCanada,2006.Commercial Fisheries Summaries (website).Seehttp://www-sci.pac.dfo-mpo.gc.ca/sa/Commercial/Summaries/Annu-alReports/Annual06_user.htm

9FisheriesandOceansCanada,May7,2007.TheMarshallResponseInitiative(website).Seehttp://www.dfo-mpo.gc.ca/communic/marshall/Marshall/in-dex_e.htm

10GovernmentofBritishColumbia,February27,2007.The BC Energy Plan – A Vision for Clean En-ergy Leadership (website).Seehttp://energyplan.gov.bc.ca/

11EnvironmentCanada,2003.Canadian Wind En-ergy Atlas (website).Seehttp://www.windatlas.ca/en/nav.php?field=EU&height=50&season=ANU&no=55

12GarradHassan,February22,2008.Assessment of the Energy Potential and Estimated Costs of Wind Energy in British Columbia.PreparedforBCHydroandPowerAuthority.Seehttp://www.bchydro.com/etc/medialib/internet/documents/info/pdf/rou_wind_garrad_hassan_report.Par.0001.File.rou_wind_gar-rad_hassan_report.pdf

13GovernmentofBritishColumbia,February27,2007.The BC Energy Plan – A Vision for Clean En-ergy Leadership (website).Seehttp://energyplan.gov.bc.ca/

14GovernmentofBritishColumbia,IntegratedLandManagementBureau,undated.Vancouver Island Summary Land Use Plan, February 2000 (website).Seehttp://ilmbwww.gov.bc.ca/slrp/lrmp/nanaimo/van-couver_island/plan/summary_lup/toc.htm

15GovernmentofBritishColumbia,LandUseCoor-dinationOffice,2001.Central Coast LCRMP Coastal Zone Strategic Plan.105pages.Seehttp://ilmbwww.gov.bc.ca/slrp/lrmp/nanaimo/cencoast/docs/AIP_coast-al_zone_plan.pdf

ANNEX.2.REFERENCES.CITED

Annex 2

36

16GovernmentofBritishColumbia,IntegratedLandManagementBureau,undated.Strategic Land and Resource Plans in BC (website).Seehttp://ilmbwww.gov.bc.ca/slrp/lrmp/index.html#marinemap

17GovernmentofBritishColumbia,February7,2006.News Release - Province Announces a New Vi-sion for Coastal BC (website).Seehttp://www2.news.gov.bc.ca/news_releases_2005-2009/2006AL0002-000066.htm

18GovernmentofBritishColumbia,undated.Haida Gwaii Strategic Land Use Agreement Implementation (website).Seehttp://ilmbwww.gov.bc.ca/slrp/lrmp/na-naimo/qci/index.html

19Kitasoo/XaixaisFirstNation,June26,2000.Kitasoo / Xaixais Land and Resource Protection and Management Plan (website).Seehttp://www.kitasoo.org/forestry/landplan/index-LandUsePlan.html

20GovernmentofBritishColumbia,undated.Coast Land Use Decision Implementation – Agreements Between First Nations and the Province (website).Seehttp://ilmbwww.gov.bc.ca/slrp/lrmp/nanaimo/central_north_coast/news/agreements.html

21GovernmentofCanada,2005.Canada’s Federal Marine Protected Areas Strategy.18pp.Seehttp://www.dfo-mpo.gc.ca/oceans-habitat/oceans/mpa-zpm/fedmpa-zpmfed/pdf/mpa_e.pdf

22FisheriesandOceansCanada,2006.Rockfish Conservation Areas (website).Seehttp://www.pac.dfo-mpo.gc.ca/fm-gp/maps-cartes/rca-acs/booklet-livret/RCA_booklet_2007.pdf

23GovernmentofBritishColumbiaandGovernmentofCanada,2004.Memorandum of Understanding Respecting the Implementation of Canada’s Oceans Strategy on the Pacific Coast of Canada (website).Seehttp://www.env.gov.bc.ca/omfd/reports/MOU-Oceans-Strategy.pdf

24SeeCanada’s Oceans Action Planathttp://www.dfo-mpo.gc.ca/oceans-habitat/oceans/oap-pao/page06_e.asp

25GovernmentofBritishColumbia,MinistryofEn-vironment,January2007.British Columbia Marine Oil Spill Response Plan.103pages.Seehttp://www.env.gov.bc.ca/eemp/resources/response/pdf/marine_oil_response_plan.pdf

26ThePacificStates–BritishColumbiaOilSpillTaskForce,2003.Official Website.Seehttp://www.oilspilltaskforce.org/

27FisheriesandOceansCanada,2007.Ecosys-tem Overview – Pacific North Coast Integrated Management Area (PNCIMA).Can.Tech.ReportFish.Aquat.Sci.2667.AppendixK:MarineBirds.Seehttp://www.dfo-mpo.gc.ca/libraries-bibli-otheques/328842_e.htm

28GovernmentofBritishColumbiaandGovernmentofCanada,2004.Memorandum of Understanding respecting the Implementation of Canada’s Oceans Strategy on the Pacific Coast of Canada. 6 pages.Seehttp://www.env.gov.bc.ca/omfd/reports/MOU-Oceans-Strategy.pdf

Annex 2

IMAGE CREDITS

Outside front & back covers Margaret Butschler Coral Cargill Ken Cripps Steve Diggon Dorthe Jacobsen Mike Jakubowski Jacob Joslin Doug Neasloss Maya Paul Holly Pulvermacher Lynne Yamanaka

Inside map Julie Beaumont

Inside layout p.3, 22 Holly Pulvermacher p.5 Miguel Borges p.6, 18 Jacob Joslin p.8 Mike Jakubowski p.10, 12 Coral Cargill p.17 Henry Wolcott p.20, 24, 28 Environment Canada p.26 Patricia DeMille p.29 Luis Miguel Bugallo Sánchez p.30 Pauline Ridings

helvetica black cond

pacific north coast integrated management area (pncima

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