Regional Oceans Plan - Scotian Shelf, Atlantic Coast, Bay of Fundy
Background and Program Description
Table of Contents
Introduction
Purpose
The Regional Oceans Plan outlines the approach and actions that Fisheries and Oceans Canada (DFO) is taking to support oceans and coastal management in the Maritimes Region. The Plan responds to DFO’s responsibilities under the Oceans Act to lead and facilitate integrated and ecosystem approaches to the management of Canada’s oceans. Departmental actions to advance regional priorities are profiled throughout the document and also presented in summary form in the Implementation Priorities document in relation to the over-arching goals of the Plan.
The Plan represents an evolution of previous oceans and coastal management efforts within the Maritimes Region, including the Eastern Scotian Shelf Integrated Management (ESSIM) Initiative that concluded in 2012. It draws on lessons learned from the ESSIM process, as well as other initiatives. The Plan moves beyond the Large Ocean Management Area (LOMA) concept pursued initially through DFO’s Integrated Oceans Management Program and uses the Scotian Shelf-Bay of Fundy bioregion as its geographic basis. The bioregion, which corresponds with the department’s administrative boundaries for the Maritimes Region, encompasses the offshore Scotian Shelf and Gulf of Maine, the Atlantic coast of Nova Scotia, and the Bay of Fundy.
Within the Maritimes Region, the lead for the department’s Integrated Oceans Management Program is the Oceans and Coastal Management Division, housed within the Ecosystem Management Branch. The Oceans and Coastal Management Division is organized to develop and implement three core, inter-related Program components: (1) Oceans and Coastal Management; (2) Marine Protected Area Planning and Management; and (3) Collaboration and Engagement. The central part of the Plan is organized in terms of these three components and lays out the main capacities, activities and outputs delivered through them.
The Plan supports a new approach for the Integrated Oceans Management Program that is focussed on priority management needs and activities that are identified through ecosystem and risk management approaches, and addressed through effective management instruments and tools. Within this approach, DFO commitments and actions for oceans and coastal management are clearly aligned and linked with the department’s mandate, authorities and responsibilities. Activities under the Plan also correspond directly to a nationally-defined set of outcomes and outputs for the Integrated Oceans Management Program.
The Plan places a strong emphasis on collaboration and engagement, reflecting the broad range of interests and complexities in managing activities in the marine environment. Ongoing communication, coordination and alignment within DFO is essential to ensuring effective management and coherent decision making. Intergovernmental mechanisms, including Memoranda of Understanding (MOUs) and existing governance bodies, will continue to be used to establish priorities and actions that are aligned with various mandates for oceans and coastal management held by other federal and provincial departments. The Plan also identifies a range of engagement mechanisms for working with marine stakeholders and industry to advance oceans and coastal management in the Maritimes Region.
Figure 1: Planning Areas in Scotian Shelf-Bay of Fundy Bioregion, DFO Maritimes Region
Figure 1 is a map of the area covered by the Regional Oceans Plan showing the extent of the Exclusive Economic Zone and boundaries with the Newfoundland and Gulf Regions of DFO and with the US. It indicates the Bay of Fundy, Atlantic Coast and Offshore Scotian Shelf areas within this overall area.
Vision
Healthy marine and coastal ecosystems, sustainable communities and responsible use supported by effective management processes.
Goals
The Plan is focussed on the following over-arching goals:
Effective Decision Making
Timely access to accurate and validated information for decision making is a critical component of oceans and coastal management. Under the Plan, DFO is focussed on developing knowledge products and tools, providing validated and accurate information, and preparing area and issue-specific operational guidance for managers and decision makers both within and outside the department. Ensuring this information is readily available in a timely manner is equally important. These products will support the highest priority issues within the Maritimes Region as determined by expert knowledge, stakeholder input, and risk-based analysis. The development and accessibility of this type of information will support better decision making by all parties, including government, industry and the broader community.
Ecosystem Approach to Management
DFO is pursuing an ecosystem approach to management for all aspects of its mandate. This reflects current scientific thought and international guidance and commitments. An ecosystem approach places the ecosystem at the forefront of consideration when managing those activities that affect it. By understanding thresholds and limits beyond which the system would be impacted, the activities are managed to maintain the ecosystem within its natural tolerances. All management measures advanced under the Plan will take an ecosystem approach.
Spatial Planning and Management
DFO supports a spatial approach to oceans and coastal planning and management. This involves the use of validated spatial data, maps and analytical methods for addressing human use and ecosystem interactions. A pragmatic and operational approach to the principles of marine and coastal spatial planning can provide effective, flexible and adaptive solutions for oceans and coastal management problems.
Marine Conservation
DFO is committed to effective marine conservation through the development of a network of Marine Protected Areas (MPAs) and the ongoing management of existing MPAs and conservation areas under the Plan. The department is also placing a priority on risk assessments and management guidance for the suite of Ecologically and Biologically Significant Areas (EBSAs) identified throughout the bioregion.
In recognition of the need to balance comprehensive ecosystem protection with responsible development and use, DFO supports the careful selection of appropriate conservation instruments, measures and tools to address regional needs and threats.
Collaboration and Engagement
DFO supports a collaborative approach when addressing oceans and coastal issues in order to share resources and knowledge, seek advice and work together to advance common priorities. This is critical given the multiple jurisdictions present within the coastal and marine environments. A range of intergovernmental and stakeholder engagement, consultation and participatory methods are supported under the Plan.
Departmental Alignment
The Plan supports a coordinated and consistent approach to oceans and coastal management within DFO. A “whole of DFO” approach is important to ensure effective and coherent decision making. One of the aims of the Plan is to strengthen departmental management and decision making by responding with one voice on cross-cutting issues, such as offshore oil and gas, renewable energy development, marine transportation, or environmental incident preparedness and response. In addition, regular coordination and information sharing is required to ensure that departmental policies are well aligned and cohesive.
Key examples of responsibilities requiring a cross-cutting departmental response include fisheries management and protection, aquaculture development, aquatic species at risk, marine conservation planning, and ecosystem science and research.
Legislative and Policy Context
The primary legislative basis for the Plan is provided by the Oceans Act that sets out in law the principles of oceans and coastal management that apply to all federal authorities with some role regarding Canada’s oceans, its resources and uses. The Act outlines specific oceans and coastal management commitments to be led by the federal Minister of Fisheries and Oceans, including the following:
- Lead and facilitate the development and implementation of a national strategy for the management of estuarine, coastal and marine ecosystems (Sections 29 and 30);
- Lead and facilitate the development and implemen- tation of plans for the integrated management of all activities or measures in or affecting estuaries, coastal waters and marine waters (Section 31);
- Develop and implement policies and programs with respect to matters assigned by law to the Minister for the purpose of implementing integrated management plans (Section 32);
- Coordinate with other Ministers, boards and agencies for the implementation of policies and programs of the Government of Canada with respect to all activities or measures in or affecting coastal and marine waters (Section 32);
- Designate Marine Protected Areas (Section 35-1) and lead and coordinate the development and implementation of a national system of Marine Protected Areas for the purposes of implementing integrated management plans (Section 35-2); and
- Establish marine environmental quality guidelines, objectives and criteria respecting estuaries, coastal waters and marine waters (Section 52.1).
To support these commitments under the Oceans Act, DFO is mandated to “gather, compile, analyse, coordinate and disseminate information” and to “cooperate” or “enter into agreements” with other “Ministers, boards and agencies of the Government of Canada, provincial and territorial governments, affected Aboriginal organizations, coastal communities and other persons and bodies” (Section 33-1).
DFO’s role under the Oceans Act as the lead federal authority for oceans is supported by Canada’s Oceans Strategy (2002) and the department’s Policy and Operational Framework for the Integrated Management of Estuarine, Coastal and Marine Environments in Canada (2002). These two documents set out the policy objectives and overall approach to Integrated Oceans Management for DFO in collaboration with its partners at the federal, provincial and territorial levels of government, Aboriginal organizations, and other oceans and coastal interests.
The Integrated Oceans Management Program operates under a national set of outcomes, outputs and associated activities. The three core outcomes of the Program are (1) collaboration among ocean regulators and users, (2) access to sound knowledge, advice and decision support, and (3) awareness and accountability by regulators and users to their respective roles and responsibilities for the management of Canada’s ocean ecosystems and resources. The Program is focussed on achieving these national outcomes by delivering associated outputs of collaborative governance structures, effective management tools, knowledge products and advice, and conservation planning and instruments, including Oceans Act Marine Protected Areas. Ultimately, the Program outcomes link directly to DFO’s strategic outcomes for Sustainable Aquatic Ecosystems, Economically Prosperous Maritime Sectors and Fisheries, and Safe and Secure Waters.
In addition to the provisions of the Oceans Act, DFO uses its responsibilities under several other pieces of legislation to support oceans and coastal management in the Maritimes Region. These include the Fisheries Act, Species at Risk Act, Canadian Environmental Assessment Act, and the Canada Shipping Act, and their related policies, programs and regulations.
The Oceans Act and its supporting policies and programs respond to a number of Canada’s international oceans governance commitments. These include the range of priorities, agreements and measures under the United Nations Convention on the Law of the Sea and the Convention on Biological Diversity, among other instruments. The Plan provides a regional vehicle for supporting relevant DFO initiatives to address Canada’s international oceans-related commitments.
The Eastern Scotian Shelf Integrated Management Initiative: Pilot Project in Ocean Management
The Eastern Scotian Shelf Integrated Management (ESSIM) Initiative was the first offshore integrated management effort under Canada’s Oceans Act. From 1998 to 2006, the main focus of the ESSIM Initiative was the development of an Integrated Ocean Management Plan to provide long-term direction and commitment for integrated, ecosystem-based and adaptive management of all marine activities on or affecting the eastern Scotian Shelf. The resulting Plan was organized by three over-arching goals -- Collaborative Governance and Integrated Management, Sustainable Human Use, and Healthy Ecosystems -- and a series of management strategies aimed at implementing these goals. From 2006-2011, the ESSIM Initiative focussed on implementing the objectives and management strategies. The ESSIM process also fostered the establishment of a Stakeholder Advisory Council and the inter-governmental Regional Committee on Coastal and Ocean Management. As a result of a departmental shift to bioregional planning and implementation, the ESSIM Initiative ended in 2012.
Work in this Large Ocean Management Area (LOMA) was initially undertaken as a pilot project to develop capacity and experience with integrated management. A formal review and evaluation of the ESSIM Initiative and associated Plan was undertaken in 2012-13. This review helped shape the current Regional Oceans Plan so that it builds on the strengths and lessons of the ESSIM experience and addresses the challenges it faced.
Guiding Principles
DFO implements its responsibilities for the Integrated Oceans Management Program using the following principles and approaches as articulated in the Oceans Act:
- Sustainable development is economic development of resources that meets the needs of the present generation, but does not compromise the ability of future generations to meet their own resource needs.
- A precautionary approach to management errs on the side of caution in decision making.
- Adaptive management recognizes that management is continually changing, and management practices must be flexible so as to respond to these changes.
- An ecosystem approach to management places the ecosystem in the forefront and human activities are managed so the state of the ecosystem remains within an acceptable range.
- A collaborative approach is used to engage and involve other government departments, Aboriginal organizations, marine sectors, and the broader public on oceans and coastal management activities under the Oceans Act.
- Integrated management is the planning and management of human activities in a comprehensive manner while considering all factors necessary for the conservation and sustainable use of marine resources and the shared use of ocean space.
Approach
The aim of the Plan is to focus on priority issues related to DFO’s mandate where an integrated management approach can be pursued. This approach is driven by the identification of key issues or pressures, the assessment and management of the risks they pose, and use of targeted collaboration and engagement with responsible and affected parties, rather than sustaining complex and lengthy planning processes. All DFO commitments and actions under the Plan are clearly aligned with the department’s mandate, authorities and responsibilities.
This approach builds upon many of the positive aspects of the ESSIM process and the lessons learned and experiences of the Integrated Oceans Management Program since the passing of the Oceans Act. Efforts to share information and collaborate with other organizations and initiatives that support the priorities under the Plan will continue. Established stakeholder relationships will be supported to ensure progress on high priority issues. Public communication and engagement is also used to ensure awareness of issues and the efforts that DFO is taking to address them, and provide opportunities for input.
Intergovernmental engagement and coordination continues to be pursued to support the efforts of other organizations’ actions.
The expanded focus of the Plan to include inshore and coastal areas involves many levels and departments of government. DFO works with the range of departments that have direct mandates for coastal areas. The Regional Committee on Coastal and Ocean Management will continue to be a formal mechanism for intergovernmental coordination on both coastal and offshore issues. Coordination is supported under an existing Memorandum of Understanding (MOU) on Coastal and Ocean Management with the Province of Nova Scotia. A similar arrangement is under discussion with the Province of New Brunswick. DFO will continue to partner on existing coastal management initiatives within the Maritimes Region, including that of the Bras d’Or Lakes Collaborative Environmental Planning Initiative (CEPI) and the Southwest New Brunswick Marine Advisory Committee (SWNB MAC).
What is the relationship between Oceans and Coastal Management and MPA Planning and Management?
The Regional Oceans Plan outlines DFO’s priorities for its Integrated Oceans Management Program in the Maritimes Region. Many of these priorities fall within the inter-related Program components of Oceans and Coastal Management and Marine Protected Area (MPA) Planning and Management. Under the Oceans and Coastal Management component, priorities include developing tools and knowledge products to better inform planning and management decisions, collaborating with government departments and stakeholders, and coordinating internal DFO policies, programs and decision making processes.
For the MPA component, priorities are to complete the designation of the proposed St. Anns Bank MPA, manage existing MPAs and other conservation areas, and lead the development of an MPA network plan for the bioregion. Many of the activities under the Oceans and Coastal Management component will complement and support MPA planning. For example, the work to compile, characterize and map human uses allows for the careful consideration of potential socio-economic and use impacts and costs involved in both bioregional and site-specific MPA planning. Synergies and efficiencies also occur in terms of collaboration and engagement activities as common mechanisms and methods are used to work with government partners and stakeholders.
Regional Oceans Plan
Vision
Healthy marine and coastal ecosystems, sustainable communities and responsible use supported by effective management processes
Goals
- Effective Decision Making
- Ecosystem Approach to Management
- Spatial Planning and Management
- Marine Conservation
- Collaboration and Engagement
- Departmental Alignment
Activities
- Risk Assessment and Issue Prioritization
- Spatial Information and Analysis
- Operational Guidance and Knowledge Products
- Bioregional Assessment and Reporting
- Departmental, Intergovernmental and Stakeholder Engagement
- MPA Network Development
- MPA and Conservation Area Management
Program Components
- Oceans and Coastal Management
- Marine Protected Area Planning and Management
- Collaboration and Engagement
Figure 2: Regional Oceans Plan: Vision, Goals, Program Components and Activities
Monitoring and Reporting
The Plan will include regular monitoring and reporting processes to assess the effectiveness and relevance of the efforts under it, and to communicate results internally within DFO and externally with other government departments and stakeholders. A full review of the Plan will occur every three years to account for changing conditions and priorities. Interim reports and updates on the Plan will also be prepared and made available to all interested parties.
DFO’s activities under the Plan will also be monitored and reported through internal departmental performance measurement systems. These will take place at both a regional and national level. This work will be to ensure actions under the Plan are relevant to the needs in the area, meet expected outcomes, and are consistent with national approaches under the Integrated Oceans Management Program. Specific actions led by DFO under the Plan will be reported and updated on an annual basis through the department’s work planning and performance management processes.
DFO will draw upon information and expertise from within the department, including its Oceans and Ecosystems Science and Policy and Economics sectors, and from other oceans-related organizations with relevant knowledge and information, to support monitoring and reporting under the Plan. In addition, the Plan will draw upon information about the overall health of the bioregion available in the recently completed State of the Scotian Shelf and State of the Gulf of Maine reports. These reports address a number of issues covered by the Plan and describe the current conditions, driving forces, impacts and actions underway to address them. Other available reports and studies on oceans-related trends and status may also be considered in relation to reporting under the Plan.
The Evolution of the Maritimes Regional Integrated Oceans Management Program: Developing Capacity for Oceans and Coastal Management
From the beginning, the Integrated Oceans Management Program in the Maritimes Region has taken a “learn by doing” approach in meeting the ambitious oceans management commitments outlined in the Oceans Act. As a new national program, there was little previous experience to draw from and many lessons have been learned from the early work on the Region’s Large Ocean Management Area on the eastern Scotian Shelf, coastal management areas in the Bras d’Or Lakes and Southwest New Brunswick, and through the selection, designation and on-going management of the Gully and Musquash MPAs and Coral Conservation Areas. Considerable capacity has been developed over the years in a number of key areas that continue to support the Oceans Act mandate and help in the implementation of the Regional Oceans Plan.
The Oceans and Coastal Management Division (OCMD), which is the lead for the Integrated Oceans Management Program and this Plan, has developed strong multidisciplinary capacity in the areas of oceans and coastal management, conservation planning, engagement and collaboration, decision support and advice for problem solving, and the analysis and use of spatial data and information. The development of knowledge, skills and experience in policy, planning and management has been instrumental to the Program given the multidisciplinary nature of the work.
This has been supported by the need to serve as an “honest broker” and facilitate work among the diverse interests involved in the marine and coastal environments, including other levels and departments of government, industry, academics, First Nations, conservation organizations and coastal communities. This experience and the structures and relationships created to support this engagement remain invaluable. Practical “on the water” actions, including MPA site management, operational advice and decision support for marine development projects, marine research on sensitive areas, critical habitat identification for aquatic species at risk, and influencing environmental site assessment outcomes, are examples that have helped focus the Program on real world problem solving. This work is grounded in a commitment and ongoing investment in spatial decision support, including geographic data analysis and mapping, a human use atlas, the use of advanced surveillance and monitoring technologies, and the completion of ecological, socio-economic, and traditional knowledge studies.
In these ways, DFO has made considerable strides in implementing the Oceans Act and has built capacity in a wide range of disciplines required to continue meeting its commitments.
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