Salmon Farming Near First Nations in BC - UBC SCARP Fish Farming... · Salmon Farming Near First...
Transcript of Salmon Farming Near First Nations in BC - UBC SCARP Fish Farming... · Salmon Farming Near First...
Salmon Farming Near First Nations in BC
A Structured Decision Making Approach
PLAN525
Brett Freake
Janet Kivett Knight
Tao Ocean Luo
Claudio Pareja
Lara Therrien Boulos
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TableofContents
1.0 Introduction.......................................................................................................................................21.1 Decision-MakingApproach....................................................................................................2
2.0 Context.................................................................................................................................................22.1 FramingtheProblem................................................................................................................22.2 Stakeholders.................................................................................................................................32.3 InfluenceDiagram......................................................................................................................6
3.0 ObjectivesandPerformanceMeasures.................................................................................63.1 Objectives.......................................................................................................................................63.2 PerformanceMeasures............................................................................................................7
4.0 StrategiesandAlternatives.........................................................................................................74.1 Strategies.......................................................................................................................................74.2 Alternatives.................................................................................................................................10
5.0 ConsequencesandUncertainties...........................................................................................115.1 Consequences.............................................................................................................................115.2 Uncertainties..............................................................................................................................13
6.0 Trade-offs.........................................................................................................................................137.0 Recommendations........................................................................................................................148.0 ConclusionsandReflections.....................................................................................................15WorksCited.................................................................................................................................................17
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1.0 Introduction
ThefarmingofwildsalmonhasbeenacontentiousissueinBritishColumbiafor
manyyears.Newlicensesweresuspendedintheearly2000sduetoconcernsovernegative
effectsoffarmingoperationsonwildsalmonstocksandenvironmentalsurroundings.
Recently,issuingoflicenseswasre-establishedthroughaprocessthatinvolvesboththe
federalgovernment(DepartmentofFisheriesandOceans)andprovincialauthorities
(MinistryofAgriculture).However,manyofthesocialandenvironmentalissueshavenot
beensufficientlyaddressed.
Asagroupweweretaskedwithaddressingthefollowingquestion:Whatisthebest
alternativetoissuingfishfarminglicensesnearFirstNationsreservesinBC.?
1.1 Decision-MakingApproach
OurprocessfollowsthesixstepsoutlinedinStructuredDecisionMaking:APractical
GuidetoEnvironmentalManagementChoices(Gregory,T.,Failing,L.,Harstone,M.,Long,G.,
McDaniels,T.,Ohlson,D.,2012).SDMisparticularlyusefulduringdecision-making
processesthatinvolveinterdisciplinaryandtechnicalevaluationwithmultiplestakeholders
(Gregoryetal.,2012).Wehavetakenaniterativeapproachtoeachstepandtotheprocess
asawhole.
2.0 Context
2.1 FramingtheProblem
ThefishfarmingindustryhasbeenoperatinginBritishColumbiasincethe1970s.
Sincethen,theindustryhasexperiencedtremendousgrowth,withtotalproductionvalue
andoutputdoublingbetween1995and2005.Meanwhile,thewildfishingindustryinBC
decreaseditsoutputby30%duringthatsametime.Asof2007,theprovincehadbecome
thefourthlargestproduceroffarmedsalmonintheworld,contributing$163milliontothe
province’sGDP;thewildfisheriesindustrycontributed$67millioninthatsameyear(BC
Legislativeassembly,2007).
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Anumberofstakeholdershaveengagedindebateoverthefutureoftheindustry,
particularlyinconsiderationofthelocationoffarmsandconcernsaboutenvironmental,
socialandeconomicimpacts.Therearevaryingopinionsonallaspects.
Additionally,therehavebeennumerousconflictsbetweenfishfarmsandwild
fisheriesindustries,whichareoperatedbybothFirstNationsandcommercialentities.As
such,thereistheneedtomakedecisionsaroundtheissuingoffishfarminglicences,
especiallyregardingtheirlocation,butalsowithconsiderationoffarmingmethods,
employmentissues,environmentalimpacts,andcommunityrelationships.
2.2 Stakeholders
Weconductedageneralreviewofdocumentationonthefishfarmingcontroversyin
ordertodevelopalistofpotentialstakeholders.Thesestakeholderswerethengrouped
aroundcommoninterests.Tobetterunderstandwhateachstakeholdergroup’sspecific
concernsmaybeinrelationtotheissuingofnewlicenses,researchwasdonefromeach
groups’perspective.AppendixAliststhetypesofresourcesthatwereassessedforeach
stakeholdergroup.
FirstNations
ThemajorityofFirstNationshavetakenanoppositionalviewtofishfarmsfora
numberofreasons,includingimpactstoculturalheritage,rightsandtitle,andgeneral
concernoverthehealthoftheircommunitiesandlands.Salmonisaculturallysignificant
speciestoallFirstNationsinBritishColumbia,regardlessoftheirdistancefromthecoast.
DuetoalackofmeaningfulconsultationwithFirstNations,fishfarmsareoftenseen
asbeingindirectoppositiontoFirstNations’rightsandtitletotheirtraditionallands,
watersandfishingrights.Somefarmshavebeenplacedintheimmediatevicinityof
culturallysignificantplacessuchasburialgroundsorsacredsites.Thereisconcern
regardingthebioaccumulationofchemicalsandantibioticsintheenvironmentandthe
possibilityforthesetonegativelyimpactcommunityhealth(UBCIC,2014).Additionally,for
manyFirstNations,concernovertheimpactsoffishfarmingonthewildfisheries
(includingwildsalmon,oolichan,shellfishandothers)outweighsanypotentialeconomic
benefitsderivedfromfishfarming(UBCIC,2014).
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Despitethisopposition,thereisalsosomesupportfromIndigenouscommunities.
TheTlatlasikwalaFirstNationandtheAhousahtNationareamongsttheFirstNations
communitieswhohaveenteredintopartnershipswithaquaculturecorporationsinan
efforttobringeconomicstimulustotheircommunities(TlatlasikwalaFirstNation,2015;
AboriginalBusinessandInvestmentCouncil,2015).
FishFarmingIndustry
BCisthefourthlargestproduceroffarmedsalmonintheworldandfarmedsalmon
representBC’slargestagriculturalexport.InadditiontoitslargecontributionstoGDP(see
p.3),theindustrycreatestheequivalentof1,500fulltimejobsandsalmonfarmingdoubled
inproductionvalueandoutputbetween1995and2005(BCLegislativeassembly,2007).
Thefishfarmingindustrycharacterizesitselfasasustainableandevenbeneficial
alternativetowildsalmon,byreducingthepressureonwildsalmonstocks.Theindustry
viewsitselfashighlyprogressiveandclaimsthatithaslittleecologicalimpacton
ecosystemsnotimmediatelynearfishfarms(BCSFA,2015).
Government
TheFederalGovernment,throughtheDepartmentofFisheriesandOceans(DFO),is
responsibleforadministeringlicensesforsalmonfarms,buttheBCprovincialgovernment
makessitelocationdecisions(DFO,2015).TheDFOhasthreeprimaryobjectives:
EconomicallyProsperousMaritimeSectorsandFisheries;SustainableAquaticEcosystems;
andSafeandSecureWaters(DFO,2015).
TheDFObelievessalmonfarmingisinlinewiththosegoalsandthattheindustryis
“comprehensivelyregulatedtooverseetheenvironmental,foodsafety,andanimalhealth
aspectsofsalmonoperations”(DFO,2015).TheDFOalsocelebratesitscontributionstothe
scientificliteratureinregardstosalmonfarming(DFO,2015).However,controversial
decisionstosilenceDFOscientistswhoseresearchexposestheharmfuleffectsofsalmon
farmingonwildsalmonpopulationshavecastdoubtontheDFO’spolicies(CBC,2015).
ScientificCommunity
Thegeneralconsensusinthescientificcommunityisthatfarmingsalmonhasmajor
impactsandimplicationsforwildsalmonandotherspecies,includingdecreasingthe
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survivalorabundanceofwildpopulationsby50%(FordandMeyers,2008).However,
thereareothernaturalforcesatplay,anddecreasesinwildstockscannotbepinnedon
salmonfarmingalone.
WildSalmonFisheries
Mostinformationabouttheimpactsoffishfarmingonwildfisherieshascome
throughtheperspectiveofenvironmentalorganizationsandthescientificcommunities.
Economically,commercialfishingisasignificantcontributortoBC’seconomycontributing
$216millionindirectoutput,$67milliontoGDP,and1,600fulltimejobsrelatedtofishing
inBC(BCLegislativeassembly,2007).Thewildcommercialsalmonindustrydeclined
significantlybetween1995and2005,withoveralloutputfallingby30%(BCLegislative
assembly,2007).Manypeople,especiallyenvironmentalgroups,havepointedtofishfarms
asamajorfactorinthatdecline.
EnvironmentalGroups
Environmentalgroupshavetakenanaggressivestanceinoppositiontosalmon
farminginBC,includingtheDavidSuzukiFoundation,FriendsofWildSalmon,Common
SenseCanadian,andWatershedWatch.Thesegroupsechotheconcernsofscientistsover
impactstowildsalmonstocks,damagetomarineecosystemsandwildlife,andnegative
effectsonlocalcommunities(WatershedWatchSalmonSociety,ND,DavidSuzuki
Foundation,ND,FriendsofWildSalmon,ND,CommonSenseCanadian,2015).Other
organizations,suchastheWorldWildlifeFund,haveinternationalcampaignsdevotedto
industryreform(WWF,2015).
ConsumersofSalmon
Inallthiscontroversy,itseemstheconsumerisstuckinthemiddle.Amajordriving
forcebehindthemarketforsalmonisadesireforaffordableandreadilyavailablefish
protein.Thediscoursebetweenalloftheotherstakeholdershasmadeitdifficultfor
consumerstoconfidentlymakeinformeddecisions.
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2.3 InfluenceDiagram
Inordertobetterunderstandthecontextofthequestionandthevariousfactors
influencingtheproblem,wedevelopedaninfluencediagram(Figure1).Theinfluence
diagramshowsthefourmajorconcernsforFirstNations:oceanhealth,salmonfarming
processesandlocations,wildsalmonhealth,andemployment,aswellashowotherfactors
affecttheseconcerns.
Figure1:Influencediagram
3.0 ObjectivesandPerformanceMeasures
3.1 Objectives
Afterresearchingfromeachofthestakeholders’perspectives,weidentifiedthe
followingobjectives:
• InacknowledgementofFirstNationsinterests:
o PositiveimpactonthehealthandwellbeingofFirstNationscommunities
o Ensurecontinuedmonitoringandlearningofaquaculturepractices
• InacknowledgementofFirstNationsandGovernmentinterests:
o Sustainorincreaselocalemployment(regionallyandwithinBC)
• InacknowledgementofFirstNations’,Scientists’,WildFisheries’andEnvironmental
Groups’interests:
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o Ensurethatthewildsalmonlifecyclewillnotbenegativelyimpacted
o Avoidnegativeenvironmentalimpacts
• InacknowledgementofFishFarmingIndustry’sinterests:
o Maintainorincreasefishfarmingindustryrevenues
• InacknowledgementofConsumers’interests:
o Supportasustainablesourceoffishtomeetmarketdemand
3.2 PerformanceMeasures
Foreachobjective,meansofmeasuringperformancewereconsidered.Forexample;
thenumberofFirstNationsemployeesonlocalfishfarms,countsofwildfishstocks,
revenuesfromindustry,andconsumercostofsalmon.Consideringtherestrictedscopeof
theassignment,weusedaqualitativescaleinsteadofspecificmeasurements,underthe
premisethatadditionalexpertadvicewouldbesoughtindevelopingappropriate
measurementsinanactualdecision-makingprocess.Thescaleusedisthefollowing:
• Verygood:Thealternativesignificantlyimprovestheobjective
• Good:Thealternativeisastepforwardtowardstheobjective
• Neutral:Thealternativedoesnotaffecttheobjective
• Bad:Thealternativeisastepbackwardfromtheobjective
• Verybad:Thealternativesignificantlynegativelyaffectstheobjective
4.0 StrategiesandAlternatives
4.1 Strategies
Onceweidentifiedourcoresetofobjectives,webegantoidentifystrategiesto
addressthem.ThesestrategiesareshowninTable1.Themainquestionrevolvedaround
theissuingoflicenses.However,asthelicense-issuingbodycanimposerequirementson
fishfarmingoperations,wealsodevelopedarangeofdifferentcategoriesofactionfor
addressingtheobjectiveswithinthelicensingprocess.Theseincludedtheinputsintofish
farms,locationoffishfarms,processesusedinfarmingoperationsandtherelationshipsor
involvementbetweenlocalFirstNationsandthefishfarmingindustry.Thesecategories
werethoughtofas‘secondaryquestions’inthedecision-makingprocess.Foreachstrategy
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category,wedeveloped‘bookend’strategiesrepresentingtheextremesofaction,andthen
filledinthefullrangeofpossiblestrategies.
MainQuestion:IssuingofLicenses
Regardingtheissuingoflicensing,thestrategiesweconsideredrangedfromdoing
nothing(continuingtoissuethecurrentnumberoffarminglicenses,withnochangesto
requirements),tocancellingallfishfarminglicenses.Withintherange,moreorfewer
licensecouldbeissued,withorwithoutchangestolicenserequirements.
SecondaryQuestions
Assumingthatlicenseswouldbeissued,wethenexaminedtherangeofstrategies
possibleasrequirementsonlicenses:
FarmingInputs:Intermsoffishfarminginputs,weagainidentified‘extremes’
(changingnothing;requiringfullyorganicpractices),aswellaslookedatadjustmentstothe
typesoffood,thetypesoffishused,andtypesandamountsofantibioticsused.
LocationsofFishFarms:Asthelocationsoffarmshasalsobeenanissuewithinthe
fishfarmingdebate,itwasimportanttoconsiderthisindevelopingthepossiblestrategies.
Hereweconsideredleavingfarmswheretheyare,aswellasmovingthemclosertoFirst
Nations’reserves,fartherfromFirstNations’reserves,outofthemigratorypathsofwild
salmon,fartheroutintotheocean,andmovingtheoperationsontoland.
FishFarmingProcesses:Howfarmingoperationsarecarriedoutiskeyto
understandingthecontroversyaroundthepractice.Startingfromchangingnothing,we
identifiedpotentialchangestofarmingpracticesthatincludedrotatingfishthrough
differentareasofthepens,reducingtheamountoffishperpen(toreducespreadofdisease
betweenfish),usingmethodsthatwouldlowerthenecessaryconcentrationsofantibiotics,
andmakingthepensmoveableorusingaclosed-pensystem(bothtoreducetheeffectof
wasteontheoceanfloorbelowpens).
FirstNations’RelationshipsandInvolvement:TherelationshipwithFirstNations
andtheirinvolvementwiththefishfarmingindustryisofcentralimportancetotheoverall
problemofissuingfishfarminglicensesnearFirstNationsreserves.AsdifferentFirst
Nationshavewidelydiverseperspectivesonfishfarming,itwasnecessarytodevelopa
rangeofstrategiesthatcouldcapturetheseinterests.Extremesweidentifiedinthis
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strategycategoryweredoingnothing(essentiallygivingFirstNations’interests‘lipservice’
intheissuingoflicenses),toallowingFirstNationstovetodecisionsandputtingall
decision-makingpowersinthehandsofcommunities.Wealsodevelopedstrategiesthat
wouldcallformoremeaningfulconsultationindevelopingandoperatingfarms,givingFirst
Nationsoversightoflocalfishfarms,andmandatingemploymentopportunitiesand/or
royaltiesforthenearbyFirstNations.
Developingandevaluatingthesestrategieswastricky,asevenwithintherangeof
strategies,therearemultiplevariables.Forexample,ifweweretochangethetypeoffishas
achangetoinputs,therearemanydifferentfishthatcouldbeevaluatedasreplacements.
Table1.StrategyTable.WeuseFNforFirstNationsandFFforFishFarming.
MAINQuestion SecondaryQuestions(Additionalrequirementsoflicenses)
IssuingofLicenses Inputstofishfarms Locationoffish
farmsFishfarmingprocesses
FNrelationships/involvement
Changenothing(continuetoissuesame#oflicenses,currentrequirements)
Issuesame#oflicenseswithnewrequirements(location,inputs,processes,etc.)
Issuefewerlicenseswithnonewrequirements
Issuefewerlicenseswithnewrequirements
Issuemorelicenseswithnonewrequirements
Issuemorelicenseswithnewrequirements
Nolicensesissued
Changenothing(Atlanticsalmon;Chileanfeed;tonsofantibiotics)
Changefeedtype
Changefishtypes(pacificsalmon,otherfishes)
Stopusingantibiotics(“organic”farming)
Changenothing(don’tmove)
PutthemclosertoFNreserves
MovethemfurtherfromFN
Movethemoutofmigratorypathsofwildsalmon
Movethemtotheocean
Putthemonland
Changenothing(samefishallthetime,highdensity,sameconcentrationofantibiotics,immobilepens)
Rotatefishtype
Lowerconcentrationoffishinpens
Loweruseandconcentrationofantibiotics
Makethepensmovable
Useaclosedpensystemwithbuilt-infiltrationsystems
Changenothing
Meaningfulconsultation,engagement,indecisionmaking(inputbutnotfinalsay)
FNshaveoversight,auditingonnearbyFFs(esp.re:environment)
MandateFNemploymentopportunitiesinFF
MandateeconomicreturnstoFNbasedonFFprofit(royalties/trust/other)
FNwithvetopoweroverlicensingneartheircommunities
FNmakealldecisionsastolicense#s,otherrequirements)
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4.2 Alternatives
Usingthestrategytable,thegroupcreatedthreedifferentalternatives,aswellasa
“nochange”baselinealternative.Eachalternativegenerallyaddressesoneobjectivemore
directlythanothers,thoughstrategiesarechosenfromthewholerangeofpossibilities.
FishFarmingFriendlyAlternative
AlternativeOneisa“fishfarmingfriendly”option,asitproposestheleastchange
fromcurrentfishfarmingpractices.Inadditiontoissuingmorefishfarminglicenses
withoutalteringcurrentlicensingrequirements,thealternativeensuresthatemployment
opportunitiesforFirstNationscommunitymembersareguaranteedtobemadeavailableif
thecommunitymemberswishtoworkatthefishfarm(s),andalsocommitstomeaningful
consultationwiththeFirstNationsonwhoseterritorythefishfarm(s)wouldbelocated.By
addingthesetwostrategiestocurrentfishfarmingoperations,thealternativeallowsusto
explorewhetherornotsuchchangesaresufficienttoresolvetheongoingconcernsabout
fishfarminganditseffectsonFirstNationscommunities.
WildSalmonFriendlyAlternative
AlternativeTwotakesamoreenvironmentally-focusedapproachtothedecision
problem,specificallyasitrelatestotheeffectsoffishfarmingonwildsalmonhabitatand
wellbeing.Undertheassumptionthatnewfishfarmlicenseswithadditionalrequirements
mayincludecontinuedmonitoringandlearningaboutaquaculturepractices,someofthe
possiblechangestothelicensesareexploredinthisalternative:forexample,changingthe
typeoffeed,reducingoreliminatingtheuseofantibiotics,locatingthefishfarmsinclosed
pensintheoceanoronland,loweringtheconcentrationoffishinthepens,andlocatingthe
fishfarmsawayfrommigratorypathsforwildsalmon.Themajorityofthestrategiesare
thusbasedonscience-basedchangestofishfarmingpractices.
FirstNationsInterestsAlternative
AlternativeThreefocusesonthehealthandwellbeingofFirstNationscommunities.
Manyofthestrategiesinthisalternativeareidenticaltothoseinthe“wildsalmonfriendly”
alternativebecauseoftheculturalsignificanceofwildsalmontoFirstNationsinBC.In
additiontoimposingadditionalrequirementsonanynewfishfarmlicensesissuedand
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exploringalternativefishfarmingmethods,thisalternativealsoexplorestheoptionof
havingFirstNationsmembersauditingoroverseeingfishfarmoperationsandproviding
feedbacktothefishfarms,aswellasgivingFirstNationscommunityvetopoweroverthe
issuingofnewfishfarmlicensesneartheirreserves.TheselasttwostrategiesgiveFirst
Nationsmuchmoreinfluenceoverthefishfarmlicensingprocessthancurrentpractices,so
theassumptionisthatthisalternativewouldlikelyimprovethewellbeingofFirstNations
communitiesaffectedbyfishfarminginBCasaresult.
5.0 ConsequencesandUncertainties
5.1 Consequences
Basedonourresearch,wedeterminedthatpotentialconsequenceswouldfallinto
threebroadcategories:
• environmentalconsequences,suchasoceanpollution,spreadofdiseasetowild
salmonandothermarinespecies,lossofbiodiversity
• socio-economicconsequences,bothforFirstNationscommunitiesandthefarmedand
wildsalmonindustries
• socio-culturalconsequences,especiallyforFirstNationscommunities
Aftercreatingthefouralternatives,wedraftedaconsequencetable,whichisshowed
onthenextpage(Table2)toassesseachalternative’sabilitytomeetourstatedobjectives,
withtheabovebroadconsequencesinmind.Weevaluatedthealternativesusingour
qualitativeperformancemeasurescale,andthepreviousresearchwehadconducted.
Needlesstosay,inanactualstructureddecisionmakingprocess,thegroupwouldhave
accesstoexpertknowledge,technicalandscientificinformation,andtraditionalknowledge
fromlocalstakeholdersthatwouldimprovetheabilitytomakesoundevaluations.
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Table2:Consequencetable.Theobjectivesweresummarizedforbetteruseofspace.
OBJECTIVES
STRATEGIESPositiveImpactonFirstNations
SustainorIncreaseLocalEmployment
Ensurewildsalmonwillnotbe
negativelydisturbed
AvoidNegative
EnvironmentalImpacts
Supportasustainablesourceoffish
Continuedmonitoringandlearning
ofaquaculture
Maintainorincreasefishfarmingindustryrevenues
Nochange Nochanges Verybad Bad Verybad Verybad Verybad Verybad Good
FishFarmingFriendlyAlternative
Morelicenses Verybad Neutral Verybad Verybad Bad Neutral GoodMeaningfulconsultation(FN&others) Verygood Good Verygood Verygood Verygood Verygood NeutralEmploymentopportunitieswithFN Good Verygood Good Neutral Good Neutral Neutral
WildSalmonFriendlyAlternative
Fewerlicensesandnewrequirements Good Bad Verygood Verygood Verygood Good VerybadChangefeed/fishtype Neutral Neutral Verygood Good Good Neutral Bad"Organic"farming Neutral Neutral Neutral Good Good Neutral NeutralLocatedonland Neutral Neutral VeryGood Neutral Neutral Neutral BadLocatedawayfrommigratorypaths VeryGood Neutral Verygood Verygood Good Neutral BadLowerfish/antibioticsconcentration Good Neutral Good Good Good Neutral BadClosed/Movablepens Verygood Neutral Verygood Verygood Verygood Neutral NeutralRotatefishtype Neutral Neutral Good Good Neutral Neutral Neutral
FirstNationsInterestsAlternative
Fewerlicensesandnewrequirements Good Bad Verygood Verygood Verygood Good VerybadChangefeed/fishtype Neutral Neutral Verygood Good Good Neutral Bad"Organic"farming Neutral Neutral Good Good Good Neutral NeutralLocatedawayfromwildsalmonmigratorypaths Verygood Neutral Verygood Verygood Good Neutral Bad
Lowerfish/antibioticsconcentration Good Neutral Good Good Good Neutral BadClosed/Movablepens Verygood Neutral Verygood Verygood Verygood Neutral NeutralRotatefishtype Neutral Neutral Good Good Neutral Neutral NeutralFNswithoversightandauditing Verygood Good Verygood Verygood Verygood VeryGood BadFNswithvetopower Verygood Bad Verygood Verygood Verygood Good Verybad
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5.2 Uncertainties
Toaccountforourlimitations,wedevelopedalistofuncertaintiesthatshouldbe
consideredinthedevelopmentandimplementationoffinalrecommendations.Wepulled
thesefromtheresearchweconductedfromtheperspectivesofeachstakeholdergroup,and
groupedthemasfollows:
• Levelofimpactoffishfarmsonpollution,spreadofdisease,wildstocksofsalmon
• Thresholdforcollapseofwildsalmonstocks
• DifferentFirstNationscommunities’perspectivesonfishfarming
• Publicperceptionoffarmedsalmon
• Costofimplementingtheproposedstrategies
Consideringtheuncertainties,thecontroversyovertheissueoffishfarming
understandable.Therearemajordisagreementsastowhatthelevelofenvironmentaleffect
offishfarmsis(includingwithinthescientificcommunity),aswellasuncertaintyastothe
thresholdsforwildsalmonstocks.DifferenceinopinionalsovariesbetweenFirstNations
astothedesirabilityoffishfarmingpractice,theirenvironmentalimpact,andtheireffecton
traditionalfisheries.
Publicperceptionoffarmedsalmonalsocontainsdiverseopinions,withsome
consumerspreferringfarmedfishoverpricierwildsalmon.Howpublicperceptionmight
change(thuschangingdemandforfarmedfish)isalsoanuncertainty.Finally,without
highlytechnicalunderstandingoffarmingprocessesandeconomics,environmentalcosts,
andindirectimpactsonemployment,itisverydifficulttopredictwhattheoverallcostsof
implementinganyrecommendationswouldbe.
6.0 Trade-offs
Thetrade-offsinherenttomakingadecisiononfishfarmlicensingcanbeboiled
downtohowthedecision-makerschoosetocharacterizethedecisionproblem:ifwelookat
fishfarmingthroughanenvironmentaleconomicslens,thentheenvironmentalandsocial
impactsoffishfarmswouldbeconsideredexternalities,andthereforewouldnotbeas
importantastheeconomicobjectives.Ontheotherhand,ifweassessthedecisionproblem
fromanecologicaleconomicperspective,thentheenvironmentalandsocialaspectsofthe
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alternativesarepartofthetruecostoffishfarmingandthusbecomemoreimportanttothe
overalldecision-makingprocess.
Keepinginmindthatthecontextofourprojectspecificallylooksattherelationship
betweennewfishfarmsandFirstNationsreservesintheirvicinity,wewouldarguethat
usinganecologicaleconomicsframeworktoassessthetrade-offswouldbemost
appropriatewayforward,asitisamoreholisticapproachtoevaluatingtheconsequences
andtrade-offsforeachparticularalternative.
7.0 Recommendations
Inevaluatingthefouralternativesusingtheconsequencetable,wequickly
determinedthatthe‘nochange’conditiondoesnotadequatelyaddresstheenvironmental,
social,andFirstNations-orientedobjectives.The‘fishfarmfriendly’alternativeisslightly
betterthanthestatusquo,butstilldoesnotsufficientlyimprovethehealthandwellbeingof
FirstNationscommunities.Thatsaid,theconsultationprocesswithFirstNationsinthis
alternativewouldlikelybebetterthancurrentpractice.The‘wildsalmonfriendly’andthe
‘FirstNationsinterests’alternativesbothproducesimilarlypositiveoutcomes,inparticular
fortheenvironmentalandsocialobjectives.TheevaluationalsoindicatesthatFirstNations
andenvironmentalgroupsoftensharesimilaroutlooksontheenvironmentalimpactsof
fishfarming.However,wefeelthatthe‘FirstNationsinterests’alternativeispreferableasit
moreexplicitlyprotectsFirstNationscommunities’interestsinadditiontoreducingthe
negativeenvironmentalconsequencesoffishfarming.Further,giventheuncertaintiesin
thecurrentlegallandscapeconcerningFirstNationsrights,wefeelthatitismostprudent
tointegratestrongrelationshipbuildingintothelicensingprocessmovingforward.Despite
thesepositiveaspects,the‘FirstNationsinterests’alternativewilllikelynegativelyimpact
thefarmedfishindustry.Shoulddecision-makerschoosetoimplementthisalternative,it
wouldbeadvisableforthemtoexaminehowthesenegativeeconomicimpactscouldbe
mitigated.
Wehadoriginallyhopedtoexamineotherpotentialinfluencesonthedecision
problem,includingecotourismandotherindustries,consumerpreferencesandfishmarket
dynamics,andpotentialchangestocurrentlegislationsurroundingfishfarms.Recognizing
thatthisstructureddecision-makingexercisehadalimitedscope,wewouldrecommend
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furtherexplorationoftheseareaspriortomakingadecisiononthefutureissuingoffish
farmlicenses.
8.0 ConclusionsandReflections
Inaddressingthisquestionasagroup,wefacedseveralchallenges.Theseincluded
definingthescopeofthequestion,identifyingthedecision-makers,workingwithlimited
timeandinformation,andincorporatingdiverseperspectivesinabalancedway.
Whatisthecontextscope?
Clarifyingthedecisioncontextisthefirststepofdecision-makingprocess.Thisstep
involvesestablishingthescopeandboundsforthediscussionsanddecisions.Inthe
beginning,ourdecision-makingprocessstartedfromaverybigpicture,asthefishfarming
industryisinternationallyconnected.Thegroupspentthemajorityofourtimediscussing
salmonfarminginCanada,andspecificallynewsalmonfarminglicensesnearFirstNations
reservesinBC.Asaresult,thenarrowingofthetopicdidnotoccurforafewweeks,aswe
exploredthebroadercontextofthesubject.Thisslowedusdown,butalsogaveusvaluable
contextontheissuethatultimatelyprovedvaluabletoourprocess.
TimeandInformationLimitations
Thisdecision-makingprocessisbasedonlimitedinformationandresources
availabletous,suchasscientificdataandeconomicinformationaboutthefishmarket.
Whenresourcesarelimited,it’snecessarytofocusonthemostimportantsourcesof
uncertainty,thoseforwhichreductionswouldbeofgreatestvalue.Assuch,weaimedtobe
veryclearaboutwhatthebroaduncertaintiesofthisprocesswere,andrecognizedthatour
limitedabilitytomakemoreinformedevaluationsofouralternativeswassimplyoutofour
control.
Wewerealsolimitedintermsofthescopeoftheproject:wedidnothavethetimeor
spacetodiscussotherrelatedpoliciesthatcouldbeconsideredinrelationtothefish
farmingcontroversyinBC.Thus,someimportantconsiderationswerenotaddedintothis
decision-makingprocess,includingeducationinitiativesaroundsalmonconsumer
awarenessandhabits,otherpotentialenvironmentallegislation,andsupporttoalternative
industries.
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Whatisthedecision?Tobemadebywhom?
Inthebeginning,thisdecision-makingprocessdidnothaveaclearlyidentified
decision-maker.Thealreadycomplexissueofsalmonfarmingisfurthercomplicatedbythe
factthatthefederalgovernment,theBCprovincialgovernment,andmunicipalother
decision-makingbodieshavebeenandmaybeinvolvedinthedecision-makingand
implementationprocesses.Ultimately,wedecidedtomakethedecisionasourresearch
groupinsteadoftryingtoassumeoneparticulargovernmentalbody’sperspective.
Diverseperspectives
ThisprojectbringsFirstNationsvalues,asoneofmanygroupsofstakeholders,into
thedecision-makingprocessinawaythatisnotcurrentlyoccurringinthesalmonfarm
licensingprocess(or,indeed,manyotherdecision-makingprocesses).Asresearchers,the
majorityofusalreadyhaveabackgroundinterestinFirstNationsconcerns,anditwas
difficulttoensurethatourbiasdidnotoverlyaffectourevaluationofthealternativesorthe
decisionswemade.Theprocessdidhighlighttheimportanceofintegratingdifferent
stakeholders’perspectives,especiallytoreachbalancedoutcomes.
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WorksCited
AboriginalBusinessandInvestmentCouncil.(2015).AhousahtFirstNationandCermaq
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