quote: DFO Major Fish Enhancement Facilities ($15.3M per year):
The role of the major fish enhancement facilities was to engage in stock recovery and rebuild the depleted stocks while providing harvest opportunities and fishery benefits as part of an Integrated Fisheries Management Plan. There are 23 major fish enhancement facilities within the SEP. Twenty two are owned and operated by DFO. The Pallant Creek hatchery on the Queen Charlotte Islands is owned by DFO, jointly funded by the SEP and the Aboriginal Fisheries Strategy and operated by the Haida Tribal Society.
• Community Involvement Program (CIP) ($6.5M per year):
The CIP consists of two elements. First, the Community Economic Development Program (CEDP) with an annual budget of approximately $3.5 million is composed of 21 hatchery projects operated under contract. Second, the Public Involvement Program (PIP) receives $3.0 million for education, outreach, streamkeepers activities, and the operation of small volunteer run hatcheries and funds roughly 350 projects.
• Habitat Restoration ($2.7M per year):
This component focuses on habitat, restoration, as well as support for integrated watershed planning and partnerships related to habitat. It leverages between three to four million dollars a year from the private and volunteer sectors.
• Program Coordination, Assessment and Direction ($1.2M per year):
This component provides for planning, co-ordination and technical support and direction for the other program components.
It should be emphasized that fish production remains the Program’s main goal and most supported in terms of resources ($19.3M out of $25.7M) and activities ranging from large scale DFO hatcheries to the smaller scale hatcheries run by First Nations and local community groups under the Community Economic Development Program.
In 2008 the SEP launched a 5 year revitalization strategy as a means of modernizing and renewing the program. However, at the time of the evaluation, the SEP revitalization strategy elaboration was still underway and it was therefore too early to integrate these results in the analysis.
3.1 Relevance
Key Findings:
• SEP is aligned with Government of Canada priorities and DFO mandate and strategic outcomes.
• There are indications of public support for SEP activities in the Pacific region.
• Recent renewal of the Pacific Salmon Treaty (PST) between Canada and the United States with commitments to specific salmon enhancement activities; and DFO’s Wild Salmon Policy which indicates the SEP’s roles and responsibilities for conservation of wild salmon, highlight the continuing need for the Salmonid Enhancement Program (SEP) as the only Federal program providing large-scale salmon enhancement activities in support of Federal and DFO commitments.
At the time of the evaluation, there were indications of an increasing alignment of the SEP with Government of Canada priorities including support for traditional industries such as fisheries, protection of water and land and improving the lives of Canada’s aboriginal people. Further in April 2009, the SEP received funding from the 2009 Budget through Canada’s Economic Action Plan. The SEP will receive funds under the Modernizing Federal Laboratories Initiative to refurbish its hatcheries ($2.60M) as well as to renovate the infrastructure for improving both the water supply and delivery systems ($5.47M).
Linkages exist between the SEP and the DFO mandate and strategic priorities. SEP is identified under Fisheries Management within DFO’s 2007 Program Activity Architecture (PAA) structure and as such primarily contributes to the Sustainable Fisheries and Aquaculture strategic outcome. The fish production objective, which represents 75% of SEP’s total budget, supports the PAA Fisheries Management activity. The SEP is also integral to the DFO’s Strategic Plans (2000-2005, 2005-2010), Sustainable Development Strategies (2001-2003, 2005-2006, 2007-2009), and DFO’s RPP (2005-2006, 2006-2007, 2007-2008).
The three remaining SEP objectives of habitat restoration, community capacity development, public stewardship which represent 25% of SEP’s budget could also be linked to a strategic outcome in the PAA, namely, Healthy and Productive Aquatic Ecosystems, although they are not specifically identified as such.
The continuing need for the SEP can be emphasized by the renewal of the Pacific Salmon Treaty (PST) between Canada and the United States in 2008. Effective from 2009 to 2018, the purpose of the treaty is to ensure the conservation and harvest sharing of Pacific salmon and commits both parties to a carefully planned and coordinated joint enhancement program for trans-boundary rivers. The treaty also ties Canada and the US to certain principles, including the implementation of an enhancement program consistent with the protection of existing wild salmon stocks, the habitat upon which they depend and the use of a variety of approaches to increasing production. This Treaty and its principles have major implications for DFO in particular for salmon enhancement activities where the SEP is the only means for Canada to honour its commitments.
Further highlighting a need for the SEP is DFO’s Wild Salmon Policy which came into effect in 2005. The policy describes how DFO will meet its responsibilities for the conservation of wild Pacific salmon. It stipulates an overall policy goal for wild salmon, identifies basic principles to guide resource management decision-making, sets out objectives and strategies to achieve the goal and defines SEP’s roles and responsibilities for enhancement and other activities.
It was noted by Program staff that the SEP needed to be revitalized and refocused so that it could better address the current context of the salmonid resources and the continuing decline of Pacific Coast salmon stocks. The approach to doing so would be the continuation of alignment of the SEP with the Wild Salmon Policy. Other initiatives such as the Recreational Fisheries Vision, Species at Risk Act (SARA), climate change and integrated planning in the Oceans Act could also impact the SEP.
Indications are that there is public support for the SEP to focus on environmental stewardship by volunteer groups, habitat protection and restoration, education and the development of remote communities through the economic benefits provided by the hatcheries. Most key external informants were of the opinion that the use of social mechanisms such as stewardship, education, and outreach were important to make possible the societal adjustments for resource conservation. Moreover, it was thought that enhancement achieved through ecological means, such as habitat restoration, were a more responsible approach to sustaining the resource. Public support for the SEP does not appear to be uniform across the province. In coastal areas, where there is a large commercial and recreational fisheries industry, awareness of the SEP program is high whereas within the interior areas of the province the program has less visibility.
Public support for the SEP’s primary Fish Enhancement Facilities activities did not appear as robust. Results of the 2002 public consultation seemed to emphasize the importance of sustaining wild salmon (i.e., supporting genetically diverse and self-sustaining salmon populations) with the thought that sustaining fisheries through the use of hatcheries posed a risk to wild salmon. It was felt that smaller facilities should be favoured over major facilities and that hatcheries should be used as a temporary measure when a salmon run is threatened with extinction and until the salmon run is secured and sustainable once again. It should be noted that the last SEP consultations (in 2000) were held concurrently with the consultations for the drafting of the Wild Salmon Policy and may have influenced public understanding that resulted in the public favouring enhancement for conservation purposes over the enhancement for harvest purposes.
It was observed that the SEP activities of habitat restoration, community capacity development and public stewardship share similar objectives to other DFO programs and contribution agreements; however, their activities complement rather than duplicate each other. (See graph 1).
These programs and recipients do not share the same activities or the same project selection criteria which vary between programs. For example, the SEP and the Habitat Stewardship Program (HSP) share similar overall objectives but have different criteria which distinguishes them. The SEP projects are involved in salmon enhancement activities, which include projects of habitat restoration, community capacity development, public stewardship and fish production.
HSP projects consider only Species at Risk Act (SARA) listed species and fund projects related to these species for habitat restoration, community capacity development and public stewardship. (Project selection criteria for the programs and recipients listed in Graph 1, were not studied in detail for the SEP evaluation).
It can be noted that of the SEP’s four activities, the fish production component is unique. The SEP is the only Federal program that provides large-scale salmon enhancement activities and it is this activity which would serve to support the objectives, principles and DFO’s commitments under the Pacific Salmon Treaty.
It can be noted that of the SEP’s four activities, the fish production component is unique. The SEP is the only Federal program that provides large-scale salmon enhancement activities and it is this activity which would serve to support the objectives, principles and DFO’s commitments under the Pacific Salmon Treaty.