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What We Heard: Adapting Gulf fisheries to a changing climate

Note: Fisheries and Oceans Canada (DFO) held a series of 7 regionally focused workshops to discuss climate change impacts, barriers to adaptation, and actions to support the resilience of Canada’s wild-capture fish harvesters and harvesting industry.

What we heard report: regional perspectives on adapting Canadian fisheries to a changing climate

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Disclaimer

The following report contains opinions expressed by those who attended the regional workshop sessions and do not necessarily reflect the views of Fisheries and Oceans Canada (DFO).

Throughout this report, participant views are represented as received by DFO. However, in some instances there are discrepancies between participant interpretations and what is authorized by DFO. As such, participant comments may not correspond to the statutory, regulatory, and policy framework as understood by DFO. In addition, participant recommendations noted below reflect general consensus but should not be interpreted as having received unanimous consent.

Executive summary: key takeaways

Participants reported experiencing several impacts as a result of climate change, including:

Participants reported several concerns regarding fisheries in the era of climate change, including:

Participants are taking several actions to adapt to a changing climate, including:

Participants identified several key barriers to adaptation, including:

Participants identified several key actions to help fisheries adapt to climate change, including:

Report

Impacts of a changing climate and barriers to adaptation

How is climate change impacting your fisheries

Participants identified numerous concerns related to climate change and associated vulnerabilities, primarily the observation of shifting species distribution and migration patterns, and the decline in certain species including shrimp, mackerel, herring and Atlantic salmon. Impacts to habitats, the introduction of new and invasive species, and the resulting interaction between predator and prey are also a concern in terms of the impact on stocks, fisheries management decisions, and stability in fisheries. While many participants discussed the impacts of the significant decrease in Gulf shrimp, the possibility of success stories because of these shifts was identified, specifically the recovery of striped bass in the Gulf of St. Lawrence. However, as a primary predator for Atlantic salmon smolts, participants reported that the increase in striped bass has created conflict among fisheries due to the effects on smolt production and the resulting decline of salmon.

Participants noted that climate change seems to be impacting fisheries and aquaculture much sooner than anticipated, and expressed concerns regarding extreme weather events and patterns such as the increased intensity of post tropical storms, increasing water temperatures, atmospheric heat waves, and the shifting of the Gulf Stream and Labrador currents. Impacts included the vulnerability of certain fisheries during hurricane season, such as tuna, as well as season dates requiring modification in response to earlier warming of sea temperatures. Increased water temperatures have species-specific effects, including rapid changes in seasonality, maturation and molting, and overall quality of lobster, and increases in population in new areas creating perceived inequitable gains. Participants indicated that species like herring and snow crab are shifting their distributions toward deeper, colder waters and different regional territories, impacting existing harvesters and creating issues with gear requirements and policy conflicts.

Changing species distributions and stock rebuilding, while positive in some respects, were a concern for participants who have been impacted by increased sightings and incidental deaths of North Atlantic Right Whales (NARW) and the presence of white sharks in the Gulf of St. Lawrence. While generally beneficial from a conservation perspective, recovering stocks increases prey for sharks and consequently increases their interaction in fisheries and humans. Increasing water temperature has impacted both the timing and migration patterns of NARW, causing them to shift away from traditional feeding areas. This increased presence in the Gulf directly impacts the ability for some harvesters to fish due to fisheries closures, and participants indicated that responsive efforts, such as changing gear to adapt to closures, only works for certain fisheries.

Along with these impacts, we heard significant concerns from participants related to the future stability and predictability of future fishing in the Gulf region, specifically the ability for fisheries management decision-making processes to become responsive and adapt to climate change. Many participants expressed concern related to a perceived lack of timely science data collection by the Department and the knock-on effects to fisheries like Gulf shrimp.

What are your biggest areas of challenge and concern related to these climate impacts

Changes in seasonality came up in discussion with participants frequently, specifically the increased need to adjust season dates due to rising sea temperatures, changes in species abundance, and most notably the impact of shifting NARW migration patterns and timing. Participants noted that these increased whale sightings significantly influence their ability to plan fishing expeditions due to the short evacuation period, the magnitude of area covered by a closure, and the inability to effectively track and predict the presence of whales.

The reduction of Total Available Catch (TAC) in some fisheries due to changes in distribution, increased predation, and changing ocean environment (most notably Gulf shrimp) has caused concern for many participants wondering how other fisheries may respond to these changes and, in turn, how DFO will continue to manage decisions in an effective and time-sensitive manner. Participants shared that the decrease in TAC for Gulf shrimp created considerable difficulties for not only harvesters to maintain their livelihoods but also caused serious financial problems in a fishery with a high debt burden. Additionally, impacts were also felt by processors and plant workers, who were forced to lay off staff, shut down operations, or transform their facilities in order to process different species.

Participants identified that there is an opportunity for DFO to increase the amount of social science research being conducted, which would help to more effectively measure the impacts of fisheries management decisions on people and their communities. They expressed that the resources needed to conduct relevant research and timely tools to inform communities, managers and decision-makers can be difficult to obtain, the process to obtain them is rather lengthy and the amounts are not sufficient to have an impact quickly or as nimbly as is required. Participants felt that increasing overall accessibility to these tools and ensuring that harvester data and feedback regarding issues identified during a fishing season will better enable participants to effectively conduct their business planning. Many expressed the need for more opportunities to communicate with DFO, as well as expanding the breadth of membership in some fora in order to include additional perspectives that could provide a more holistic representation of what is “happening on the water,” including fish processors and buyers. They felt that this approach would improve the Department’s access to available data and ensure a more thorough audience is receiving information that can impact the productivity of coastal communities quickly and more effectively.

The centre of many of the identified challenges includes the difficulty in securing appropriate funding and the perceived lack of considerable investment by DFO into solving increasing complications associated with shifting environmental conditions. Participants noted that improved accessibility of funding by DFO would help make the decision-making processes faster, more efficient, and more flexible, and provide the resources required to conduct accurate and timely research. Many noted that there is a need to adapt the way that problems are identified and solutions are synthesized as a result of climate change. Some expressed frustration with a perceived lack of timely and efficient adaptability in fisheries management decisions, indicating that it is often the case that as they finally become adapted to a change, another is required, and the cycle begins again. Many find themselves unable to financially afford the adaptation needed for new requirements or experience significant difficulty accessing funding outside of highly specified funding eligibility requirements.

Participants identified that funding offered by DFO (such as the Fisheries Funds) is typically too restrictive, focusing more on research and development projects than providing appropriate adaptation assistance to both harvesters and industry. The inability to predict the next big “boom or bust” also has substantial effect on income reliance with a reverberating impact within communities in terms of livelihoods and the ability for harvesters and industry to plan their businesses from one season to the next.

What has changed the most in your fisheries

Participants reported that shifting species distributions are making fisheries more complex to manage, along with rising predator populations that are threatening other species (e.g., such as Striped bass which are threaten species like lobster and Atlantic salmon). Rising temperatures have driven some species into colder, deeper depths which can conflict with species-specific gear, vessels, and enterprise capabilities. Other fisheries are experiencing a significant increase in severe weather events, creating harsh conditions and heightened safety risks. Finally, many participants spoke to the increased presence of NARW adding stress to local economies due to closures and interruptions to fishing accessibility, but also to harvesters themselves.

What actions are you taking to respond or adapt to the impacts of changing conditions

Participants shared several ongoing and planned actions aimed at adapting to the challenges posed by climate change. Several examples of responsive adaptation actions taken were shared by participants, including:

These collective efforts reflect a comprehensive and multi-faceted approach to adapting to the challenges posed by climate change, with a strong emphasis on research, innovation, collaboration, and the integration of both environmental and social science considerations.

What do you think are the biggest barriers to adaptation

Some of the most significant barriers identified by participants centre around departmental decision making and internal operations. Many noted that, after over a decade of discussions, the continued focus on the ecosystem approach to fisheries management often loses momentum due to staff turnover, a lack of consistent budget approvals, and a slow science process. Others noted that with the changes to biology and behaviour occurring more rapidly than the publication of pertinent scientific data, there is a need for DFO to adapt surveying methodology and timing to be more reflective of the current state of fisheries.

Another discussion noted the fragmented regional organization of the Department was possibly creating an unintended obstacle to engaging appropriate teams required to enable the effective sharing of experiences and best practices in Atlantic Canada. However, participants felt that developing and maintaining a unified and collaborative forward trajectory would be enabled by adapting regionally-specific policies and practices, as well as internal governance structures, to ensure consistent practices and common client service delivery methods.

Participants identified that increased coordination among federal and provincial governments and fishing associations is key to enabling cohesive and collaborative approaches to fisheries management built from shared experiences – visibility in what partners are doing facilitates precise and accelerated interventions that will positively impact the fish and seafood sector as a whole.

What do you need to better adapt to the impacts of changing conditions

Participants highlighted several areas of support that are needed to better adapt to climate change, focusing on proactive, flexible approaches to fisheries management and greater collaboration. The following key themes emerged at the workshop:

In summary, participants called for more flexible, inclusive, and transparent approaches to fisheries management, recognizing the evolution of challenges presented by climate change and incorporating a more holistic approach that integrates the perspectives and knowledge from various groups. Improving data collection and financial stability, building comprehensive and inclusive management processes, and repairing relationships are seen as first steps in working towards more resilient fisheries.

Looking to the future

What is your future vision for climate-adapted Gulf fisheries? What does success look like

A key priority identified at the workshop was minimizing silos in the fisheries sector and reducing conflict, as well as working together and in consultation with as many resource users as possible. A collaborative approach encourages increased access to many different types of solutions from a broad spectrum of groups, leading to an enhanced decision-making process that is responsive to a wide breadth of concerns and issues. Participants noted that while the future vision of fisheries is one that ensures climate-adaptability to support the health of fish populations and the ecosystem, it must also concurrently nurture the sustainability of communities central to the fishing industry and contributors to the local coastal economy.

Participants shared numerous important perspectives defining what a future vision and success could look like. There was significant consensus that the key signs of success would be DFO’s transition from reactive fisheries management to a more proactive approach. This would include using holistic scientific data to provide more comprehensive advice related to the full life cycles of all species, while incorporating the use of different decision-making functions and methodologies such as scenario planning or ‘foresighting’ exercises. This would allow resource users to better predict possible outcomes in different scenarios and to anticipate potential future impacts. A more comprehensive approach would enhance stakeholder’s abilities to weigh the trade-offs of different possible scenarios (e.g., consequences for the stock, consequences for the economics of the fishery, as well as consequences for the social dimensions of coastal communities).

Examining how other countries manage fisheries resources and markets in the face of climate change was seen by participants as a key step in finding new and innovate ways to adapt Canadian practices to reflect more modernized approaches to fisheries management. For example, Alaska’s co-management models were referenced as a possible solution to ensuring a broad spectrum of interests and ideas are captured when making decisions. Additionally, transitioning from single-species fisheries to more adaptable multi-species fisheries was also suggested.

Considering recent distributional shifts and Total Allowable Catch (TAC) reductions, participants noted that the development of fisheries that are focused more on quality, rather than quantity, would help maintain healthy and resilient stocks, as opposed to the existing regime of economically-focused over-exploitation. Participants noted that this would require additional research to find new and effective ways to manage fisheries in ways that allow for profitability while keeping resources in the Gulf healthy, such as incorporating more innovative technologies that are accessible to harvesters and industry.

Participants shared that a more harmonious consultation process with stakeholders in the fisheries management process would be an important signal of success. Enabling information sharing between DFO and the resource users would bolster collaboration among groups. It would also provide an opportunity for fresh ideas and new perspectives to be built upon the vast knowledge of harvesters and industry. Participants also highlighted that expanding membership inclusivity in management committees and boards would have a significant effect on resource users by enhancing a stronger, more integrated sense of connection between government and coastal communities.

Finally, participants noted that improved quality and quantity of research efforts and scientific data would increase support to industry when facing challenges with the rising prevalence of diseases, predation, storms and weather events, and shifting migration patterns. Participants suggested that advancements in data collection would better inform resource users and enable them to make adaptive decisions in response to rapid environmental and social changes, while being nimble and flexible enough to prepare for future challenges. Ensuring that science receives the appropriate levels of funding to support our understanding of, and response to, the escalation of climate-related impacts being observed in the Gulf is seen as paramount to successfully implementing an adaptable and resilient fisheries management regime.

What are the best opportunities to support adaptation to get us there

Participants identified several important opportunities to better position Gulf fisheries to respond to the challenges posed by climate change. These actions focus on improved and more inclusive collaboration efforts, making concerted efforts to understand underlying drivers of climate change, and co-developing a new culture of fishing to help evolve into a more responsive, adaptable, and flexible regime.

To ensure the resilience of Gulf fisheries to respond effectively to climate change, participants indicated that increased and inclusive collaboration and more proactive approaches are needed, with key actions including ensuring more inclusive consultation processes, diversifying the sector, and increasing public awareness. Participants felt that a long-term commitment to adaptability and sustainability, with a focus on protecting vital areas and fostering innovation, will be critical in navigating the climate uncertainties of the future.

Results of the polling exercise

During the workshop, participants were asked to take part in an anonymous polling exercise. Participant responses are displayed below. Please note that Question 3 required participants to provide an open-text response; responses reflect the text as submitted.

Question 1: Choose all of the following that apply to you and your role

Figure 1

Question 2: On a scale from 1 to 5 (1 being the lowest and 5 being the highest), please indicate the extent to which you agree or disagree with the following statements

Figure 2

Question 3: What could increase the agility and flexibility of the fisheries management regime to respond to future challenges

Open text responses:

Participant list

Representatives from the following organizations, groups, environmental non-governmental organizations, institutions, and/or governments attended the workshop. In alphabetical order:

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