DFO's Aquaculture Policy Framework
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Table of Contents
A Message From Robert G. Thibault
Minister of Fisheries and Oceans
It is my pleasure to release Fisheries and Oceans Canada's Aquaculture Policy
Framework. Aquaculture is an increasingly important industry both in Canada and
across the globe. As the lead federal agency for aquaculture development,
Fisheries and Oceans Canada (DFO) is committed to ensuring the responsible and
sustainable development of the aquaculture industry in Canada. This policy
framework lays out how DFO will help guide the development of this young
industry in Canada.
As the fastest growing food production sector in the world, aquaculture
brings with it a great deal of potential for social and economic benefit.
Aquaculture currently provides over 14,000 direct and indirect jobs to Canadians
and generates economic activity approaching $1 billion. With increasing demand
for aquaculture products, annual employment growth rates of up to 12% can be
expected to continue, generating wealth and other important societal benefits
for Canadians, particularly in rural and coastal communities.
DFO is working closely with aquaculture stakeholders to identify and address
emerging issues. This Aquaculture Policy Framework describes DFO's vision for
aquaculture development. It defines in broad terms how we will work with the
provinces, territories, aquaculture industry and individual Canadians to create
the conditions necessary to enable the responsible growth and sustainable
development of this important Canadian industry.
I am confident that, by allowing the principles articulated in the
Aquaculture Policy Framework to inform our daily actions and decisions, DFO will
help foster the development of an aquaculture industry that will be a model of
sustainability for the world.
The Hon. Robert G. Thibault, P.C., M.P.
Minister of Fisheries and Oceans
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Executive Summary
Aquaculture is the farming of aquatic organisms in marine or
fresh water. It implies some form of intervention in the rearing process to
enhance production, such as regular stocking, feeding, and protection from
predators and disease. It also implies individual or corporate ownership of the
stock being farmed.
The Government of Canada recognizes the significant societal
benefits associated with aquaculture. As a result, it has made sustainable
aquaculture development a key federal priority.
In 1995, Cabinet endorsed the Federal Aquaculture Development Strategy
(FADS), invigorating the federal government's commitment to aquaculture
development and affirming the role of Fisheries and Oceans Canada (DFO) as the
lead federal agency in this regard. As the lead federal agency, DFO is committed
to creating policy conditions that increase both the public's confidence that
aquaculture is being developed in a sustainable manner and the aquaculture
industry's competitiveness in global markets.
DFO's Aquaculture Policy Framework is the department's response to FADS. The
objectives of this policy framework are to:
- orient DFO around a common vision for marine and freshwater aquaculture;
- shape the development of future departmental aquaculture policies and
programs;
- guide the development of operational policies for the application of DFO's
regulatory responsibilities in relation to aquaculture;
- inform any changes to DFO's legal and regulatory frameworks; and
- clearly convey to other federal government departments, the provincial and
territorial governments, the aquaculture industry, Aboriginal groups and
stakeholders the framework within which DFO is committed to taking action.
DFO's vision for aquaculture development is to benefit Canadians through the
culture of aquatic organisms while upholding the ecological and socio-economic
values associated with Canada's oceans and inland waters1.
As the lead federal agency for aquaculture development, and consistent with
its departmental mandate, DFO will act and discharge its responsibilities in a
manner that adheres to the following policy principles:
- DFO will support aquaculture development in a manner consistent with its
commitments to ecosystem-based and integrated management, as set out in
departmental legislation, regulations and policies.
- DFO will address issues of public concern in a fair and transparent
manner, based on science and risk-management approaches endorsed by the
Government of Canada.
- DFO will communicate with Canadians and be informed by their views on
issues pertaining to aquaculture development.
- DFO will respect constitutionally protected Aboriginal and treaty rights
and will work with interested and affected Aboriginal communities to
facilitate their participation in aquaculture development.
- Recognizing that aquaculture is a legitimate use of land, water and
aquatic resources, DFO will work with provincial and territorial governments
to provide aquaculturists with predictable, equitable and timely access to the
aquatic resource base.
- DFO will strive to ensure that its own legislative and regulatory
frameworks enable the aquaculture sector to develop on an even footing with
other sectors.
- In partnership with other federal departments, the provinces and
territories, the academic sector and industry, DFO will support responsible
development of the aquaculture sector.
- DFO will make every effort to understand the needs of the aquaculture
industry and to respond in a manner that is solutions oriented and supportive
of aquaculture development.
- DFO will work with other federal departments and with provincial and
territorial governments to coordinate policy development, integrate regulatory
frameworks, and improve service delivery.
Through this policy framework DFO has committed itself to being both an
enabler and a regulator of aquaculture development, affirming its role as a
department of sustainable development. Enabling means improving the business
climate for aquaculture development, to benefit Canadians. DFO will do this by:
- ensuring that DFO's laws and regulations relating to aquaculture are
clear, efficient, effective, consistently applied and relevant to the sector;
- investing in aquaculture science and research and development;
- working in partnership with provinces and territories to develop a
proactive siting process; and
- considering support for industry development programs consistent with
DFO's mandate and objectives.
DFO will play an important role in aquaculture development by using this
policy framework to help increase both sector competitiveness in global markets
and the public's confidence that aquaculture is being developed in a sustainable
manner. By building on FADS and supporting the department's vision and mandate,
DFO's Aquaculture Policy Framework will foster vibrant and sustainable
development, generating wealth and opportunities for Canadians.
Creating enabling conditions for aquaculture development is the
responsibility of all DFO sectors and regions. Giving effect to the principles
identified in this policy framework will require the commitment of resources and
the development and implementation of specific sectoral and regional strategies,
including the review of current applicable legislative and regulatory
frameworks, policies and programs to ensure that they are consistent with this
policy. To ensure that the policy framework remains relevant, DFO will engage
stakeholders in evaluating the effectiveness of the framework in fostering the
sustainable development of the aquaculture sector and will make necessary
adjustments as external conditions change.
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Policy Context
Aquaculture is a relatively new commercial activity in Canada
and in other parts of the world, but already it occupies a significant position
in the seafood production sector. Although aquaculture offers tremendous
socio-economic benefits, it has emerged at a time marked by heightened public
awareness of the potentially negative impacts of industrial activity and by
increased public scrutiny of industry and government actions to mitigate such
consequences. While Canadians are interested in realizing the full potential of
aquaculture, they are also concerned about issues such as escapes of farmed
salmon, food safety, habitat interactions, water quality, navigational safety
and aquatic animal health.
In 1995, recognizing both the potential for aquaculture to benefit Canadians
and the need to ensure the sustainable use of aquatic resources, Cabinet
endorsed the Federal Aquaculture Development Strategy (FADS). FADS was the
product of extensive consultations with aquaculture stakeholders and provided a
"road map" to help government facilitate the development of the aquaculture
industry. FADS also affirmed DFO as the lead federal agency for aquaculture
development. DFO's Aquaculture Policy Framework has been developed in response
to FADS and more recent opportunities and challenges associated with aquaculture
development.
As the lead federal agency for aquaculture development, DFO is committed to
helping increase both the global competitiveness of the Canadian aquaculture
sector and the public's confidence that aquaculture is being developed in a
sustainable manner. This policy framework is intended to enable DFO to achieve
these two important public policy objectives.
Global Trends
Canadians live in an increasingly connected international community that is
undergoing continuous and rapid change. To participate effectively in this
community, Canada must anticipate emerging global trends and develop appropriate
governance tools. A firm grasp of key international pressures is particularly
important to the development of an effective policy framework for aquaculture,
given the growing importance of the sector's contribution to the Canadian and
global economy and the world seafood supply. The following global trends shape
Canada's approach to aquaculture development.
Economic Globalization
World trade and economic activity between countries has increased
dramatically in recent years. The increased "globalization" of economic activity
has been fostered by a combination of factors, including the reduction of
domestic trade and investment barriers; the emergence of regional free trade
agreements; and technological progress that has significantly reduced the cost
of communications, processing and transportation. The resulting increases in
international trade, foreign direct investment and capital market flows have
created numerous business opportunities, with significant related socio-economic
effects. However, the increasing complexity of the global economy has also
created more business risk and demands that countries interested in competing
internationally provide stable and supportive fiscal, policy and regulatory
environments that enable industry to contribute to economic and social
development.
The dynamism of the global economy is expected to continue and will require
innovative domestic policies. The need for a stable and supportive environment
is particularly relevant to the aquaculture sector. Despite its numerous
positive developmental attributes, Canada's contribution to global aquaculture
production remains small and static at 0.2%. Increasing foreign ownership and
the mobility of capital require that Canada compete with other jurisdictions
that are also well suited for, and supportive of, aquaculture development. A
stable and supportive policy and regulatory environment is critical to achieving
Canada's potential in marine and freshwater aquaculture.
Pressures on Natural Resources
Population growth and the expansion of the global economy are exerting
pressure on the world's natural resources, resulting in environmental and social
challenges of global proportion, such as climate change, air pollution, threats
to water quality and availability, and declining biodiversity. These challenges
are particularly relevant to many of the world's coastal areas that are becoming
congested, thus making coastal communities both causes of, and vulnerable to,
environmental degradation.
Increased environmental degradation has led to more focussed attention on
human health and security issues, including global food production and
distribution. The potentially dire consequences of environmental degradation
have led to expectations that governments and the private sector will take
measures to ensure the long-term sustainability of the world's natural resources
through responsible stewardship, sound environmental management and scientific
innovation.
Aquaculture has the potential to make a major contribution to wealth
creation, food security and other aspects of human development. Policies to
achieve this potential must be developed and implemented in the context of
sustainability, with a focus on clean water, safe navigation, healthy products
and the shared use of resources. These objectives are in the interest of both
the general public and the aquaculture sector, the viability of which depends on
healthy resources.
Knowledge-based Society
Advances in science and technology, including information technology, have
had a profound impact on, and continue to transform, every aspect of human
society. The ability to develop, share and apply knowledge has resulted in
numerous important breakthroughs, solving many societal problems and
dramatically improving the quality of life. Advances in science and technology
have also presented society with many new economic, legal, ethical, cultural and
environmental challenges. The magnitude and pace of change resulting from
scientific and technological innovation are expected to increase with the
further development of new and established technologies and greater integration
of technological disciplines (e.g., communications, engineering, molecular
technologies and materials science).
In the case of aquaculture, recent scientific and technological innovations
have resulted in dramatic improvements in production efficiency, increasing
competitiveness and significantly enhancing environmental sustainability.
Advances are also being made in the identification of new applications for
aquaculture products, beyond the realm of food production, in areas such as
biomedicine and bioengineering. Government policy for aquaculture must recognize
the significant potential for innovation in the aquaculture sector and the
benefits such innovation will yield in a variety of disciplines.
Modern Governance
Governance has become increasingly complex as a result of globalization and
the convergence of global economic, social and environmental agendas. Increased
trade and globalization have brought about greater use of international
institutions and agreements to facilitate multilateral negotiations over trade,
environmental cooperation and human development. In addition to coping with, and
benefiting from, the many facets of globalization, governments must respond to
demands from for-profit and nonprofit organizations, and citizens generally, for
increased participation in governance activities and for greater government
transparency and accountability. These factors are challenging traditional
governance models and leading governments to change the way they operate.
In many instances the factors that are challenging traditional governance
models are precipitating a diffusion of power away from governments. With this
diffusion of power have come new societal expectations directed at non-state
actors. This is particularly relevant to private corporations that are being
called upon to demonstrate their commitment to corporate social and
environmental responsibility.
In addition to supporting the department's regulatory function, this policy
framework must set the stage for creative governance approaches in priority
areas such as site access (e.g., proactive planning), scientific research and
development (R&D), and government programs enabling industry development. These
approaches must include mechanisms to engage aquaculturists, Aboriginal groups
and stakeholders in decision-making and increase their accountability in
relation to key sustainability objectives.
Federal Government Priorities
The Government of Canada is responding to both the opportunities and the
challenges that these emerging global trends and domestic pressures present. Its
overarching goal is to build a stronger Canada and secure a higher quality of
life for all Canadians. It will create and share opportunities for Canadians to
participate in this collective enterprise. In pursuing this aim the federal
government is taking action in the following priority areas:
Innovation
Recognizing that knowledge and creativity are cornerstones of success in the
knowledge-based society, the federal government has committed to making Canada
among the most innovative countries in the world. To achieve this goal, it is
working with provincial governments and the private sector to position Canada at
the forefront in generating and applying new knowledge. The federal government
has committed to doubling its investment in R&D by 2010. In addition to
strengthening institutional research capacity, this investment will focus on
accelerating Canada's ability to commercialize new technologies and on
supporting collaborative R&D initiatives. Its focus also includes support for
initiatives aimed at diversification and value-added growth, as well as high
standards of environmental stewardship.
The Government of Canada views aquaculture as an important part of the
knowledge-based economy and is investing in a variety of R&D initiatives. These
include DFO's Aquaculture Collaborative Research and Development Program (ACRDP)
and Aquanet, the Network Centre of Excellence for aquaculture, both aimed at
enhancing sector innovation and competitiveness. In addition to new technologies
and practices aimed at eliminating escapes and incidence of disease, exciting
new pharmaceutical and medical applications are on the horizon. Through these
and other technological innovations, the federal government is taking steps to
harness the full potential of aquaculture, increasing sector competitiveness,
contributing to sustainability and building public confidence in the process.
Strong Communities
The development of stronger, more vibrant Canadian communities is critical to
protecting our country's core values. The federal government is committed to
making Canadian communities more prosperous and attractive places to live and
work. Through strategic investments in infrastructure and community development,
the federal government is helping Canadians participate more fully in the
knowledge-based economy while preserving traditional ways of life.
Aquaculture is critical to the growth of the seafood industry and is
therefore vital to the future of many coastal communities. As an economic
activity generating many direct and indirect benefits, aquaculture can enable
rural and coastal Canadians to remain in their communities, strengthening
Canada's social fabric and its identity in the international community.
Commercial aquaculture - both freshwater and marine - can also contribute to
interested Aboriginal communities by offering an opportunity to participate in
the knowledge-based economy and by reducing economic disparities.
Healthy Environment
The federal government recognizes its responsibility for protecting Canada's
endowment of natural resources and views a healthy environment as an essential
part of our economy and high quality of life. The federal government's focus is
on clean water, clean air and the conservation of natural space. Clean water is
particularly important in the context of finfish and shellfish culture and is
critical to the sustainability of the aquaculture sector.
Recognizing the economic, social and environmental importance of Canada's
oceans and fresh water, the federal government is working with provincial and
territorial governments, local communities, Aboriginal groups, industry and
public interest groups to increase the effectiveness of environmental protection
and conservation measures through more integrated approaches to aquatic
resources management.
A Strong International Voice
Canada's industry operates in a truly global environment. In this
environment, competitive advantages are found through collaborative and
innovative partnerships - partnerships that enable new governance models to
emerge, scientific research and technological development to flourish,
communities to benefit, and the environment to be nurtured.
The Government of Canada is working with other orders of government to
position Canada as a world leader in aquaculture development. It is doing this
1) by ensuring that Canada's policy instruments are efficient, fair and
appropriate and reflect Canadian values and sustainable development principles;
and 2) by fostering innovation in key developmental areas. In addition to
working with other governments domestically, the Government of Canada will work
with other countries to set the conditions for vibrant and responsible
aquaculture development. Not only will Canada comply with strong international
standards pertaining to aquaculture production, it will lead the way in their
development.
Aquaculture: Opportunity for Canadians
Aquaculture is one of the fastest growing food production industries in the
world and is an important part of the seafood continuum. Together, the
aquaculture and fishing industries and related service sectors generate
significant wealth and socio-economic benefits for Canadians in all regions of
the country.
The contribution of aquaculture to world fisheries production has been
growing steadily over the last decade and now accounts for a full third of total
fish supplies for human consumption. The Food and Agriculture Organization of
the United Nations projects that by 2030, aquaculture will dominate fish
supplies, with more than half of the fish being consumed originating from
aquaculture operations. Indeed, by 2025, annual demand for seafood will outstrip
the capacity of wild fisheries by some 55 million tonnes, presenting tremendous
opportunities for the aquaculture sector.
With global demand increasing and natural stocks already largely at or
exceeding their maximum capture potential, it is clear that aquaculture will
play an important role in satisfying future global demand and in contributing to
the security of the global food production system. In addition to the
opportunities relating to the production of fish supplies and to all the related
services supporting the aquaculture industry, important contributions can be
made in the areas of biomedicine, pharmacology and bioengineering.
Aquaculture operations can be found across Canada in every province and
territory, producing diverse species under a variety of culture methods. The
extraordinary range of species under culture is representative of the ingenuity
and drive inherent in the industry. In 2000, 22.8% of the total value harvested
from living aquatic resources in Canada came from aquaculture. With historical
average industry growth rates of almost 30% per year, this proportion is
increasing annually.
Already in Canada, the aquaculture sector employs in excess of 14,000 people
and approaches $1 billion annually in direct and indirect economic activity.
Specific benefits for Canadians currently include the following:
- job creation and contribution to economic growth;
- increased social cohesion through diversification and wealth generation in
rural and coastal areas;
- opportunities for Aboriginal communities;
- reduced pressure on wild fish stocks, helping to sustain and enhance the
wild fishery;
- the assurance of high-quality, safe, competitively priced and nutritious
seafood; and
- expansion of domestic and export markets for Canadian fish and seafood
products.
Based on recent aquaculture sector growth trends and Canada's significant
aquaculture development potential, the sector's contribution to the Canadian
economy could reach $3 billion by 2010.
DFO: Lead Federal Agency for Aquaculture Development
Recognizing the tremendous potential of aquaculture, and consistent with
federal priorities, the federal government has identified the development of the
sector as an important element of its strategy to create opportunities for
Canadians.
In 1984, the Prime Minister named DFO as the lead federal agency for
aquaculture development. DFO's role as lead federal agency was reaffirmed in
1995, when Cabinet endorsed FADS, and again in 1998, when the Prime Minister
appointed the Commissioner for Aquaculture Development to advise the Minister of
Fisheries and Oceans on the development of the aquaculture industry.
In 2000-01, DFO took a number of important steps in recognition of the
ever-growing significance of the aquaculture sector and its role as lead federal
agency:
- DFO identified aquaculture development as one of only four policy renewal
priorities in its five-year departmental strategic plan, articulating its
policy objectives for the sector as (1) increasing public confidence in the
sustainability of aquaculture development and (2) increasing industry's
competitiveness in global markets;
- DFO established the Office of Sustainable Aquaculture, with a view to
bringing increased policy and program coherence to aquaculture initiatives
within the federal government; and
- DFO launched its six-point Aquaculture Action Plan, involving the
development of enabling policy and regulatory frameworks for aquaculture
development; a $75 million Program for Sustainable Aquaculture; a National
Aquatic Animal Health Program; increased intergovernmental harmonization; and
a communications initiative aimed at improving the public's understanding of
aquaculture development.
These recent steps confirm DFO's commitment to enabling the responsible
development of the aquaculture sector and to strengthening its role as the lead
federal agency for aquaculture development.
Recognizing the significant provincial role in aquaculture development (e.g.,
in siting, economic development, environmental protection), DFO's role is to
create policy, program and regulatory conditions in its areas of responsibility
that will enable aquaculture development. These responsibilities include the
following:
- Administering, monitoring and enforcing compliance with its important
regulations, and carrying out its ocean management responsibilities relating
to conservation and protection, environmental and habitat protection,
navigational safety for all mariners and fish health in a clearly defined,
reasonable and consistent manner;
- Positioning Canada as a world leader in aquaculture development through
investments in science, R&D and industry development programs aimed at
improved regulatory decision-making and industry competitiveness;
- Coordinating and bringing increased coherence to federal aquaculture
program and policy development;
- Facilitating harmonization of federal and provincial aquaculture
regulatory frameworks and coordination of intergovernmental aquaculture
program and policy development; and
- Facilitating increased dialogue between aquaculture stakeholders on issues
of mutual interest.
Contributing to DFO's Sustainable Development Agenda
DFO is changing the way it does business, to respond to emerging global and
domestic sustainable development trends. In recent years, DFO has moved from
being a department focussed largely on the management of the wild fishery to one
that is increasingly concerned with integrating and managing a broad range of
ocean and inland water uses, including aquaculture. This transition accelerated
significantly in 1997 with the proclamation of Canada's Oceans Act, which
provides a framework for oceans management initiatives and calls for the
Minister of Fisheries and Oceans to lead and facilitate the development of a
national oceans management strategy.
DFO's policy agenda and this policy framework support DFO's reorientation as
a department of sustainable development. Without question, understanding the
ocean and freshwater environments, including the conservation of aquatic
resources and their habitat, remains a cornerstone and key responsibility of the
department. In addition, consistent with its corporate vision and mandate, DFO
has broadened its focus to include the sustainable development of our ocean and
freshwater environments, including consideration of socio-economic objectives
such as the generation of wealth and other societal benefits.
DFO is demonstrating its commitment to sustainable development through its
departmental sustainable development strategy and policy renewal initiatives,
including Canada's Oceans Strategy and Fisheries Management Renewal. This policy
framework is also playing an instrumental role by confirming that the department
is both a regulator of the aquaculture industry and an enabler of its
development. Through these initiatives DFO is committed to supporting a number
of key sustainability themes:
- integrated and ecosystem-based management;
- transparent decision-making approaches based on science;
- risk-management approaches endorsed by the Government of Canada (including
the precautionary approach where appropriate);
- socio-economic considerations; and
- stakeholder engagement.
By ensuring consistency in approach in these and other areas, DFO has created
strong cohesion across its policy renewal initiatives, thereby being well
positioned to respond effectively to external pressures and trends. This in turn
will further build public confidence in, and the credibility of, the department.
Aquaculture in the Context of Sustainable Development
The Government of Canada has accepted the definition of sustainable
development as first proposed by the World Commission on Environment and
Sustainable Development: "development that meets the needs of the present
without compromising the ability of future generations to meet their own needs."
It is recognized that governments, private sector organizations, public
interest groups and individual citizens all have a role to play in achieving
sustainable development.
Aquaculture in the context of sustainable development incorporates the
following elements:
- maintaining or enhancing the quality of life and the environment for
present and future generations;
- adopting an ecosystem approach and respecting the interests and values of
all resource users and considering those interests and values in
decision-making;
- identifying, planning, developing, operating, harvesting, processing, and
when necessary disposing of aquacultural products in the most efficient,
competitive and environmentally responsible manner, using best practices;
- respecting constitutionally protected Aboriginal and treaty rights;
- creating and sharing knowledge to promote innovation, continuous learning
and efficiency;
- securing the participation of stakeholders, individuals and communities in
decision-making to ensure best use of aquatic space; and
- making decisions in a fair, transparent and inclusive manner.
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Purpose of DFO's
Aquaculture Policy Framework
Given its close proximity to the world's largest market, a
reputation for high-quality, safe seafood products, excellent biophysical
potential and a highly knowledgeable labour force, Canada is well positioned to
benefit from aquaculture development. Yet strikingly, Canada's share of the
international market for aquaculture products remains very small. Indeed, in the
absence of both enabling regulatory and policy frameworks, and with other
countries favourably embracing aquaculture development, Canada's share of the
international market now risks being further diminished, resulting in lost
opportunities for Canadians.
As identified in DFO's Strategic Plan (2000), DFO has committed itself to
help increase (1) the aquaculture sector's competitiveness in global markets and
(2) the sector's environmental and social sustainability, thereby enhancing
public confidence in the sector. This policy framework is intended to:
- orient DFO around a common vision for marine and freshwater aquaculture;
- shape the development of future departmental aquaculture policies and
programs;
- guide the development of operational policies for the application of DFO's
regulatory responsibilities in relation to aquaculture;
- inform any changes to DFO's legal and regulatory frameworks; and
- clearly convey to other federal government departments, the provincial and
territorial governments, the aquaculture industry, Aboriginal groups and
stakeholders the framework within which DFO is committed to taking action.
Although industry is responsible for its commercial success, DFO does have an
important role to play, along with the provinces and others, in addressing key
impediments to the sustainable development of the aquaculture sector. As
identified in DFO's Aquaculture Action Plan, a balanced, clear and consistently
applied DFO Aquaculture Policy Framework will help establish the conditions
necessary for the aquaculture sector to bolster competitiveness, and position
Canada as a model of sustainable development.
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DFO's Vision
of Sustainable Aquaculture Development
Achieving DFO's stated strategic objectives for aquaculture
development will pave the way for reaching our ultimate vision for aquaculture
development in Canada. This vision is "to benefit Canadians, now and in the
future, through the culture of aquatic organisms, while upholding the ecological
and socio-economic values associated with Canada's oceans and inland waters."
DFO's vision of sustainable aquaculture development is consistent with the
department's strategic vision of safe, healthy and productive waters and
ecosystems for the benefit of present and future generations. Further, it
supports DFO's mandate, which states that DFO is responsible for policies and
programs:
- in support of Canada's economic, ecological and scientific interests in
oceans and inland waters;
- for the conservation and sustainable utilization of Canada's fisheries
resources in marine and inland waters;
- for leading and facilitating federal policies and programs on oceans; and
- for safe, effective and environmentally sound marine services responsive
to the needs of Canadians in a global economy.
Within the realm of food production, DFO views aquaculture development as
part of a continuum of activities that define the seafood production sector and
therefore as complementary to the wild fishery. As such, DFO's vision
encompasses full life-cycle activities and other activities, such as the rearing
of aquatic organisms for marine and freshwater enhancement and live holding in
sea pens, which add value to the wild fishery and present opportunities for
better integration within the seafood production sector. Moreover, DFO views the
scope of aquaculture development as extending beyond the realm of food
production and encompassing broader societal benefits related to human health
and quality of life. These include benefits that can be derived through
innovative biomedical and bioengineering applications of aquaculture products.
Achieving DFO's vision of aquaculture development will require a continued
re-orientation of departmental values, within DFO's existing mandate, and a firm
commitment by all DFO employees to enabling aquaculture development. As an
organization with core competencies in the areas of fish habitat protection,
environmental and biological science, fisheries management, navigational safety
and oceanography, DFO is well suited to address several important environmental
and social aspects of aquaculture development. However, achieving DFO's vision
will also require that the department continue to broaden its approach and,
where relevant, increase the level of importance it places on the socio-economic
benefits of aquaculture development. This is provided for in DFO's legislation,
vision and mandate and is of fundamental importance in achieving DFO's vision
for aquaculture development. Achieving DFO's vision will also require that DFO
work collaboratively with the aquaculture and wild fisheries industries to
identify common interests and opportunities for mutually beneficial cooperation.
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Policy Principles
DFO will, through its legislation, regulations, policies and
programs, seek to support industry competitiveness in global markets and
increase public confidence in the sustainability of aquaculture development.
DFO's efforts in this regard will be guided by the following principles:
Increased Public Confidence in the Sustainability of Aquaculture Development
PRINCIPLE 1.
DFO will support aquaculture development in a manner consistent
with its commitments to ecosystem-based and integrated management, as set out in
departmental legislation, regulations and policies.
Difficulty gaining access to high-quality production sites has been, and
continues to be, a major impediment to the growth and environmental
sustainability of the aquaculture sector. This difficulty is related to the
sector's recent emergence as a strong commercial reality and an initial
reluctance to consider aquaculture on an even footing with more well established
aquatic resource uses. Access to sites has also been made difficult because of
the limitations of the current federal-provincial siting process, which is based
on an application-by-application approach and not long-term, proactive planning.
DFO recognizes that aquaculture is a legitimate use of land, water and
aquatic resources and will work with provinces to facilitate access to the
aquatic resource base by aquaculturists and other resource users in the context
of integrated management and best use. In short, aquaculturists will be treated
on an equal footing with other resource users. DFO decisions relating to site
access will be made through transparent processes and be informed by other
resource users' interests and potential impacts on the ecosystem's integrity and
resiliency.
Although conservation of the wild fish stock and DFO's legislative
responsibilities for navigational safety and environmental and fish habitat
protection will continue to be primary considerations, DFO will, where
applicable, consider the social and economic benefits associated with
aquaculture development in the course of its decisions.
Within the context of ecosystem-based and integrated management, DFO will
encourage provincial and territorial governments, the aquaculture industry,
communities and other stakeholders to begin working together to identify
regional aquaculture growth objectives and to select biophysically and socially
suitable areas for aquaculture development. DFO will actively work with its
partners to encourage transparency and the adoption of a more proactively
planned and integrated approach for marine and freshwater aquaculture that
builds on best practices and is consistent with the planning approach advanced
in Canada's Oceans Strategy and the Oceans Act.
Such a proactive, planned and integrated approach to the site-selection
process should help to address one of the major existing impediments to
sustainable aquaculture development in Canada.
Aquaculture in the Context of Integrated Management
Integrated management (IM) means planning and managing human activities in a
comprehensive way so as to reduce conflicts and to consider all factors
necessary for the conservation and sustainable use of aquatic resources and the
shared use of aquatic space.
IM respects existing divisions of constitutional and departmental authority
and does not abrogate or derogate from any existing Aboriginal or treaty rights.
However, IM occurs within ecosystem boundaries rather than administrative or
jurisdictional boundaries. Using this "ecosystem-based approach," IM examines
effects from an ecosystem perspective, recognizing that plants, humans, animals,
micro-organisms and their environments interact as part of a dynamic and
functional system. IM recognizes that ecosystem sustainability and function are
of primary importance and, through ecosystem-based management objectives and
reference levels, attempts to address impacts throughout the entire ecosystem,
including both intended and unintended exposures.
IM is a key component of Canada's Oceans Strategy. Through this strategy, DFO
has committed to involving all interested aquatic resource users in the
development of large-scale and local IM plans for Canada's oceans. In addition
to ensuring that aquaculture develops on an even footing with other legitimate
uses of Canada's aquatic resources, active participation in IM will ensure that
the use of aquatic resources takes into consideration the health and viability
of ecosystems, thereby contributing to the long-term viability of aquaculture
development.
PRINCIPLE 2
DFO will address issues of public concern in a fair and
transparent manner, based on science and risk-management approaches endorsed by
the Government of Canada.
Canadians appreciate the significant social and economic benefits currently
associated with aquaculture and the tremendous opportunities that the sector
presents for the future. At the same time, Canadians want to be assured that
their concerns about interactions with wild stocks and fish habitat, water
quality, navigational safety, aquatic animal health and food safety, among
others, are being addressed.
DFO will enable the development of the sector within a legal and regulatory
framework that upholds and respects its responsibilities for navigational
safety, habitat protection, fisheries management and aquatic animal health. On
issues of concern outside of DFO's regulatory responsibilities, such as food
safety and the use of theraputants, DFO will exercise its federal lead agency
role and work with other federal partners, orders of government and stakeholders
to foster responsible practices and continue building public confidence in the
sustainability of the sector.
Rigorous analysis of the potential environmental and biological impacts of
aquaculture development is critical to building public confidence in the
sustainability of the sector. Accordingly, DFO will build on recent investments
in environmental, biological and aquaculture science and will work with other
partners, both in Canada and abroad, to further add to the ever-growing body of
knowledge of the potential environmental impacts of aquaculture.
In addition to further investments in science, DFO will strengthen its
decision-making frameworks by developing specific operational policies and
management structures related to its regulatory responsibilities for
aquaculture. Such operational policies will improve both DFO's ability to
fulfill its regulatory responsibilities and the consistency with which the
regulations are applied across the country. Further, DFO's regulatory decisions,
supported by enhanced science and improved decision-making and management
frameworks, will be based on risk-management approaches endorsed by the
Government of Canada, including adaptive management (involving ongoing
monitoring) and, where required, the application of the precautionary approach
to reduce the likelihood of unacceptable outcomes. Lastly, DFO will ensure that
the manner in which information is collected and used and the factors that have
been considered in decision-making are apparent to all interested stakeholders.
Through these measures - enhanced science, strengthened decision-making
frameworks, risk-management approaches endorsed by the Government of Canada, and
increased transparency - DFO will be able to assure Canadians that it is
appropriately managing issues of public concern and fulfilling its legislative
responsibilities.
Aquaculture in the Context of the Precautionary Approach
Innovation offers tremendous opportunities to improve quality of life, but it
is sometimes accompanied by scientific uncertainty and the potential for serious
or irreversible harm. In these circumstances, governments are called upon to use
the precautionary approach to manage risks while seizing the opportunities that
innovation presents.
The precautionary approach is a distinctive approach, within the realm of
risk management, to managing risks of serious or irreversible harm where there
is significant scientific uncertainty. It recognizes that lack of full
scientific certainty shall not be used as a reason to postpone cost-effective
measures to prevent environmental degradation. Canada recognizes that decisions
are ultimately guided by judgement based on values and priorities.
Canada's Oceans Act requires the government to promote the wide application
of the precautionary approach to the conservation, management and exploitation
of marine resources, in order to protect these resources and preserve the marine
environment. Put simply, the Oceans Act defines the precautionary approach as
erring on the side of caution.
DFO's use of the precautionary approach in the context of aquaculture
development will be informed by the Oceans Act and federal direction regarding
risk management, including the application of the precautionary approach.
PRINCIPLE 3
DFO will communicate with Canadians and be informed by their
views on issues pertaining to aquaculture development.
Access to sound information regarding human health and safety, environmental
protection and the socio-economic benefits associated with aquaculture
production is key to ensuring public confidence in the sustainability of the
sector. Building public confidence also requires that Canadians know that their
values and priorities are understood and respected as actions are undertaken.
DFO will ensure effective, clear and transparent communication with Canadians
about aquaculture development and will listen to Canadians' views on
aquaculture-related issues.
As the lead federal agency for aquaculture development, DFO will contribute
to informed dialogue by working with other federal agencies, orders of
government, industry, communities and individuals to provide access to sound and
credible aquaculture-related information. DFO will make scientific and other
important aquaculture information available to Canadians through means deemed
most suitable and effective for given audiences. These could include the
Internet, e-mail and other forms of electronic communication, as well as more
conventional approaches such as publications and the use of local and national
media. DFO will also seek the views of Canadians through appropriate methods and
processes such as polling, public conventions and direct personal
correspondence.
The content of this policy framework is based on input from industry,
provincial and territorial governments, communities and individual Canadians.
Specifically, it is based on FADS, which, after extensive stakeholder
consultation, was endorsed by Cabinet in 1995. The relevance and importance of
implementing FADS were emphasized again in 1999 by the Secretary of State for
Fisheries and Oceans following further discussion with aquaculture stakeholders.
This policy framework has also been influenced by public examination of
aquaculture issues as articulated by the Auditor General of Canada and the
Standing Senate Committee on Fisheries.
DFO places a high priority on the views of Canadians and will continue to do
so in the creation of an enabling policy environment for aquaculture
development. DFO will seek the views of interested parties in evaluating the
effectiveness of this policy framework and will provide interested parties with
opportunities to share their insights on its implementation. By engaging
stakeholders in the evaluation of this policy, DFO will benefit from direct
operational experience and be well positioned to modify this document over time.
PRINCIPLE 4
DFO will respect constitutionally protected Aboriginal and
treaty rights and will work with interested and affected Aboriginal communities
to facilitate their participation in aquaculture development.
Aquaculture development represents an important opportunity for Aboriginal
people in all regions to contribute to, and fully benefit from, Canada's
economic growth and prosperity. The benefits of greater economic participation
through aquaculture and related activities include wealth creation; the
development of technical, managerial and entrepreneurial skills; the development
of community economic infrastructure; revenue for the community; and the
opportunity for Aboriginal people to remain in their communities. Consistent
with the Speech from the Throne, DFO's actions in aquaculture development will
contribute to the department's efforts to improve its relationship with
Aboriginal organizations and to the economic state of Aboriginal communities.
DFO will ensure that its actions in aquaculture development respect
constitutionally protected Aboriginal and treaty rights. When making decisions
regarding its responsibilities DFO will ensure that the priorities of Aboriginal
users of aquatic resources are taken into consideration.
DFO will also work with interested and affected Aboriginal people, Indian and
Northern Affairs Canada, funding agencies, provincial and territorial
governments, academia and industry to further enable Aboriginal participation in
aquaculture development. DFO's role will be to provide aquaculture expertise
related to its mandate and to facilitate access to expertise and resources
outside DFO.
Aquaculture - Opportunities for Aboriginal communities
Aquaculture is yielding significant socio-economic benefits in many
Aboriginal communities across Canada. For example, in one remote coastal
Aboriginal community plagued by high unemployment, local people have worked
collaboratively with a major aquaculture company to develop a training program
and enable community members to work on a fish farm in their traditional
territory. In addition to increasing community employment to nearly 100%, the
initiative has been instrumental in restoring community confidence and
stability.
Consistent with the general trend toward increased Aboriginal
self-employment, Aboriginal communities are also playing an instrumental role in
the development of Canada's aquaculture sector through the creation of their own
community owned and operated aquaculture companies.
Increased Industry Competitiveness in Global Markets
PRINCIPLE 5
Recognizing that aquaculture is a legitimate use of land, water
and aquatic resources, DFO will work with provincial and territorial governments
to provide aquaculturists with predictable, equitable and timely access to the
aquatic resource base.
Predictable, equitable and timely access to space and aquatic resources such
as brood stock and seed stock are key factors affecting the ability of the
sector to attract and retain both investment and working capital. These are
critical to the development of the Canadian aquaculture sector.
Although access to sites is primarily a provincial matter, as most sites are
located on provincial property, DFO plays a significant role in the
decision-making process as a result of its statutory obligations under the
Fisheries Act, the Canadian Environmental Assessment Act, and the Navigable
Waters Protection Act.
Shared governmental jurisdiction over aquaculture activities, together with a
complex legal framework and the recent emergence of the sector as a commercial
reality, has too often resulted in a site-application review process that is
inefficient, unpredictable and costly for all parties involved.
Accordingly, DFO will undertake internal process improvements and will
further develop transparent approaches, based on fair criteria and guidelines,
upon which its site-application decisions will be made and monitored. Further,
DFO will work with other orders of government to harmonize the site-application
process, including information and reporting requirements.
In addition to an improved site-application process, DFO recognizes the
importance of access to biological materials such as brood stock and seed stock.
Accordingly, DFO will develop operational policies aimed at developing or
rejuvenating stock supplies for commercial aquaculture production.
PRINCIPLE 6
DFO will strive to ensure that its own legislative and
regulatory frameworks enable the aquaculture sector to develop on an even
footing with other sectors.
Canada's aquatic resource base is an integral component of the Canadian
economy, providing numerous opportunities and benefits for Canadians, including
direct and indirect employment, recreational enjoyment, and a safe and efficient
marine transportation system. Protecting and ensuring the sustainable use of
Canada's aquatic resources is central to DFO's regulatory commitments to
environmental and habitat protection, navigational safety, fisheries
conservation and protection, and fish health. Upholding these commitments is
critical to achieving DFO's vision and mandate and to positioning DFO as a
leader in aquaculture development.
However, DFO's current legislative and regulatory frameworks were developed
before aquaculture emerged as a commercial activity and, in some cases, are not
well adapted to the specific needs and challenges of the sector. In addition,
because the sector is relatively new, DFO has had less experience in applying
its legislative framework to aquaculture; this has resulted in inconsistencies
in application within and between regions. Similarly, the industry's familiarity
with the federal legislative framework is still developing, and there are
occasional difficulties providing the information DFO needs for making timely
regulatory decisions. At times, these factors have had a negative impact on the
economic viability of the aquaculture sector.
Accordingly, DFO will work to create an enabling regulatory framework for
aquaculture development. To be clear, enabling does not mean that DFO will
"relax" its regulatory requirements. Rather, DFO will develop operational
policies for each of its critical regulatory responsibilities relating to
aquaculture. These operational policies will serve to clarify information and
reporting requirements and the manner by which DFO's regulatory responsibilities
will be administered; they will increase transparency and effectiveness in
decision-making and increase the consistency of application across regions.
Industry will become more aware of DFO's regulatory responsibilities and will be
able to position itself accordingly. Further, in recognition of the growth and
diversity of the sector and of DFO's ongoing commitment to conservation and
protection, environmental and habitat protection, navigational safety and
aquatic animal health, DFO will review its laws and regulations and work to
modernize them where necessary. Lastly, in recognition that portions of the
regulatory framework may impose unnecessary impediments to aquaculture
development, DFO will review its laws and regulations and work to amend them
where appropriate and necessary. By clarifying the "rules of the game" and
working to modernize the regulatory framework, DFO will strive to create an
enabling regulatory framework for aquaculture development.
PRINCIPLE 7
In partnership with other federal departments, the provinces and
territories, the academic sector and industry, DFO will support responsible
development of the aquaculture sector.
DFO is committed to creating the conditions for responsible aquaculture
development. In addition to providing enabling policy and regulatory conditions,
many other countries offer programs aimed at enhancing productivity and
increasing competitiveness, thereby attracting investment and stimulating
aquaculture growth and development.
DFO recognizes that industry is ultimately responsible for its own commercial
success but that DFO can play a valuable role in contributing to this success
through innovative government-industry partnerships. The aquaculture industry's
role is to identify its developmental needs and to lead in the development of
innovative solutions to address those needs. DFO's role is to facilitate the
attainment of industry goals in a manner that is consistent with its
departmental vision and mandate.
Accordingly, as lead federal agency for aquaculture development, DFO will
continue to coordinate and conduct aquaculture research. DFO will work with
aquaculture stakeholders and universities domestically and internationally to
identify gaps in scientific knowledge and to develop cost-effective approaches
to filling these gaps. DFO will also make strategic investments in aquaculture
R&D and technology-transfer initiatives aimed at maximizing the economic
potential of, and resolving the environmental challenges associated with, the
aquaculture sector.
In addition to science and R&D initiatives, and consistent with its mandate
respecting Canada's economic interests in oceans and inland waters, DFO will
support the future development of the aquaculture sector. DFO will assist the
sector by identifying federal programs that address its needs and by
facilitating the sector's access to such programs. In addition, DFO will
consider the development of new programs that support the viability of the
aquaculture sector and create opportunities for Canadians. The development of a
National Aquatic Animal Health Program, aimed at supporting the conservation and
protection of our fish stocks, reducing the cost of disease management, and
maintaining access to international seafood markets, is but one example.
PRINCIPLE 8
DFO will make every effort to understand the needs of the
aquaculture industry and to respond in a manner that is solutions oriented and
supportive of aquaculture development.
To help position the Canadian aquaculture sector to achieve its full
developmental potential, DFO, as the lead federal agency for aquaculture
development, must be willing and able to assume an enabling role. This role
demands that DFO be creative, solutions oriented and focussed on understanding
the needs of, and building stronger relationships with, representatives of the
aquaculture sector.
This policy framework explicitly affirms DFO's recognition of the aquaculture
industry as a valued DFO client group. When developing and applying operational
policies, laws, programs or any other governance measure affecting aquaculture
development, DFO will consider the interests of aquaculturists and will adopt a
solutions-oriented approach to dealing with specific challenges.
To build DFO's capacity to take on this new role, DFO will develop management
approaches and invest in initiatives designed to improve DFO's ability to
support aquaculture development. This could include providing DFO employees with
appropriate training and development opportunities and the recruitment of people
with skills and knowledge that complement DFO's current capacities and are
necessary to properly support aquaculture development.
PRINCIPLE 9
DFO will work with other federal departments and with provincial
and territorial governments to coordinate policy development, integrate
regulatory frameworks, and improve service delivery.
As a result of the interdepartmental and intergovernmental jurisdictional
nature of aquaculture, and given the recent emergence of the sector as a
significant commercial reality, approaches to governance are not yet as
harmonized as in other sectors. This creates uncertainty and can impose
unnecessary costs on aquaculturists as well as an undesirable investment
climate. It can also contribute to federal-provincial and interdepartmental
policy and program duplication, placing further strains on government and
industry resources.
Accordingly, to further the development of the aquaculture industry and
increase opportunities for Canadians, DFO will continue to work with other
federal government departments and other governments to develop a consistent
policy approach, improve and harmonize regulatory frameworks, and increase the
effectiveness of program delivery.
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Conclusion
Through this policy framework DFO has committed itself to being both an
enabler and a regulator of aquaculture development, affirming its role as a
department of sustainable development.
DFO will play an important role in aquaculture development by using this
policy framework to help create the conditions necessary to support sector
competitiveness in global markets and increase public confidence in the
sustainability of aquaculture development. By building on FADS and living up to
the department's vision and mandate, DFO's Aquaculture Policy Framework will
help foster vibrant and sustainable development, generating wealth and
opportunities for Canadians.
Creating enabling conditions for aquaculture development is the
responsibility of all DFO sectors and regions. Giving effect to the principles
identified in this policy will require the commitment of resources and the
development and implementation of sectoral and regional strategies and actions,
including the review of the current applicable legislative and regulatory
framework, policies and programs to ensure that they are consistent with this
policy. DFO will engage stakeholders in evaluating the effectiveness of this
policy in fostering the development of the aquaculture sector and will make
necessary adjustments as external conditions change to ensure that it remains
relevant and effective.
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