Oceana Canada’s first annual Fishery Audit in 2017 revealed that our fish stocks are not delivering nearly as much as they could, for oceans or for people.

In 2017, only one-third of our stocks were considered healthy. Of the 26 critically depleted populations, only three had rebuilding plans in place. Big gaps remained in the data required to manage stocks effectively.

One year later, some progress has been made. Fisheries and Oceans Canada (DFO) has made significant investments in federal fisheries science, and the department continues to increase transparency by releasing its annual Sustainability Survey for Fisheries and departmental work plans.

On the legislative front, the House of Commons passed revisions in June that will strengthen the Fisheries Act, including direction on rebuilding depleted stocks. If it becomes law and is supported by strong regulations, this could signal a turning point in the health of Canada’s fisheries.

However, much more work needs to be done if our seafood industry is going to reach its potential.

Recent investments in federal fisheries science capacity has not yet yielded measurable change in the reported metrics. DFO is falling behind on implementing work plans developed in response to the Auditor General’s 2016 report. For example, four of five rebuilding plans promised by March 2018 remain incomplete. Key policy instruments have not been fully implemented or remain in draft form, including the proposed Fishery Monitoring Policy. Meanwhile, scientific and management information produced by DFO is often published late or not at all.

On the water, there have been few changes in stock health. This is to be expected: it takes time for investments in science and policy to be reflected in measurable changes in the abundance of fish populations. However, the slow pace of policy implementation means the long-term decline in Canada’s fish stocks has not yet been halted, let alone reversed.

Oceana Canada has recommended specific actions — detailed here — to address issues raised in this Audit. These include completing work plans and rebuilding plans, filling data gaps and finalizing a national catch-monitoring policy.

Of the 26 critically depleted populations, only three had rebuilding plans in place, none of which provide the majority of recommended content based on global best practices.

Most of Canada’s commercial fish stocks are depleted. Since 1970, an estimated 52 per cent of their biomass* has disappeared; half of this incredible resource that has sustained so many for so long, cone in one life time.

UNHEALTHY
FISHERIES

Of the 194 stocks assessed, only 69 were found to be healthy. Meanwhile, 26 stocks -13 per cent- were in critical health, and all but one are finfish.

DATA
GAPS

72 stocks don’t have sufficient data to assign them a health status.

MISSED
COMMITMENTS

Four of the five rebuilding plans promised by March 2018 remain incomplete. Key policy instruments have not been fully implemented or remain in draft form and scientific and management information produced by DFO is often published late or not at all.

Simply put, fisheries management uses sound science and data to help decide who can fish, where and when they can fish, how much they can catch and what methods and gear they use. The goal is to maximize the current harvest while still leaving enough fish to support a healthy marine ecosystem and ensure plentiful harvests decade after decade.

This report assesses Canada’s performance using indicators of good fisheries management developed from globally accepted best practices and from DFO’s policy framework.

The assessment is based on an analysis of 194 stocks, using data published on DFO websites. For complete details on the methodology and analysis used in this report, visit Appendices.

OVERALL ASSESSMENT: 26 STOCKS IN CRITICAL CONDITION, 72 UNCERTAIN

In 2018, about one-third (34 per cent) of our marine stocks can confidently be considered healthy — slightly fewer than in 2017. Meanwhile, the number of critical stocks remains the same as in 2017: 13.4 per cent. Most of these critically depleted stocks are finfish located in the Atlantic Ocean.

Due to lack of sufficient data, the status of 37.1 per cent of stocks remains uncertain. Some of these, including Pacific sardine and yellowtail flounder on Georges Bank, are likely to be in critical condition, while others like Newfoundland and Labrador lobster stocks are likely to be healthy.

HEALTHY, CAUTIOUS AND CRITICAL

Fisheries and Oceans Canada has three categories of fish stock health. They are defined relative to the maximum sustainable yield: the largest amount of fish that can be theoretically harvested without reducing the size of the stock over the long term.

A stock is considered healthy if its biomass is greater than 80 per cent of the amount that can support the maximum sustainable yield. When a stock is in this zone, fisheries management decisions are designed to keep it there.

A stock falls in the cautious zone if its biomass is between 40 and 80 per cent of the amount that supports the maximum sustainable yield. If a stock falls into this zone, harvesting rates should be reduced in order to avoid seriously depleting the stock and to promote rebuilding to the healthy zone.

A stock falls in the critical zone if its biomass is less than 40 per cent of the amount that supports the maximum sustainable yield. If a stock moves into the critical zone, serious harm is occurring and conservation actions become crucial.

IMPROVEMENTS PROPOSED IN BILL C-68, BUT SERIOUS QUESTIONS REMAIN

For 150 years, the Fisheries Act has governed the management of Canada’s fisheries. For the first time, the proposed new Act sets an expectation that stocks must be managed to healthy levels and must be returned to a healthy state if they are depleted. The proposed legislation continues to offer the Minister wide latitude to exempt stocks from rebuilding and sustainable fishing requirements. If strengthened and supported by strong regulations, and implemented consistently along with existing policies, these proposed changes could set Canada’s fisheries on a path to abundance.

DFO WORK PLANS: MORE TRANSPARENCY BUT DELAYS IN DELIVERING

In accordance with recommendations set out in the 2016 fisheries audit conducted by the Commissioner of the Environment and Sustainable Development (CESD),* DFO now creates and publishes annual work plans with priorities and timelines.

This is a substantial increase in transparency in fisheries management in Canada, making clear what the priorities are and when we can expect improvements. However, DFO has fallen far short in meeting the timelines set in those annual work plans.

In 2017/18, DFO completed only 25 per cent of the deliverables outlined in the work plans for the fiscal year.

* Commissioner of the Environment and Sustainable Development (CESD). (2016). Report 2 – Sustaining Canada’s Major Fish Stocks. Fisheries and Oceans Canada.

DFO made work plan commitments in 2017/18 that it did not meet, and more commitments have been made for 2018/19. If DFO delivers on its commitments, we will see improvements to the management of Canada’s fisheries.

REBUILDING PLANS: TOO LITTLE PROGRESS

Rebuilding plans are vital for restoring the health of Canada’s fisheries and maintaining and strengthening the coastal communities that depend on them. In 2017, DFO committed to developing rebuilding plans for 19 stocks, some of which are in the cautious zone and declining.

In February 2018, a rebuilding plan for yelloweyerockfish inside population was published. Meanwhile, at the end of May 2018, the rebuilding plan for Atlantic cod in the Northern Gulf of St. Lawrence expired. And although the rebuilding plan for Atlantic cod on the Scotian Shelf and Bay of Fundy has been approved and reviewed by Oceana Canada and others, it is still not publicly available. As a result, just three of Canada’s 26 critical-zone stocks are currently included in rebuilding plans that are published and available. Of the three rebuilding plans in place, none provide the majority of recommended content based on global best practices.

Case studies

By the end of June 2018, two more critical zone stocks were included in rebuilding plans: Atlantic cod on the Scotian Shelf and Bay of Fundy and the yelloweye rockfish inside population. However, neither stock was assessed prior to the development of the rebuilding plans, and as described in the case studies below, those plans have significant flaws.

YELLOWEYE ROCKFISH – INSIDE POPULATION

The yelloweye rockfish inside population was added to the existing rebuilding plan for groundfish in the Pacific region. However, there are a number of gaps. Among other shortfalls, the stock has not been fully assessed since 2009, so targets and time frames are likely nearly a decade old. The rebuilding plan does not outline any new rebuilding measures, merely summarizing the measures that have been in place since 2012. Moreover, the effectiveness of those measures does not appear to have been evaluated, with no indication of what has been achieved to date in terms of estimated total mortality.

Credit: Ocean Exploration Trust, WHOI MISO, Northeast Pacific Seamount Expedition Partners

ATLANTIC COD 4X5Y – SCOTIAN SHELF AND BAY OF FUNDY

In March 2018, a finalized rebuilding plan was approved for Atlantic cod on the Scotian Shelf and Bay of Fundy. Because the stock has not been fully assessed since 2009, there were no recent estimates of spawning stock biomass, fishing mortality or natural mortality to inform the plan. As a result, it lacks a short-term quantified target abundance, has weak time frames and has no probability estimates associated with meeting targets in the expected time frames.

Furthermore, the rebuilding plan does not include new management measures to promote rebuilding or any evaluation of the effectiveness of those in place. On the plus side, this rebuilding plan clearly identifies knowledge gaps, future management considerations and action items to address issues related to rebuilding the stock..

Credit: Canadian Scientific Submersible Facility/ROPOS, Oceana Canada and Fisheries and Oceans Canada