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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