Opening Statement to the Standing Senate Committee on Fisheries

Fisheries and Oceans - The Effects of Salmon Farming in British Columbia on the Management of Wild Salmon Stocks

(Chapter 30 - December 2000 Report of the Auditor General)

2 May 2001

Ron Thompson, CA
Assistant Auditor General of Canada

Thank you, Mr. Chairman, for the opportunity to discuss the results of our Fisheries and Oceans audit, presented in our December 2000 Report - The Effects of Salmon Farming in British Columbia on the Management of Wild Salmon Stocks.

This was our third audit of the Department's Pacific salmon management programs since 1997. Our previous audit chapters had reported on habitat protection and the Department's management of the Pacific salmon fisheries. We had noted the continuing loss of salmon habitat and the decline of some wild salmon stocks. Indeed, Pacific wild salmon stocks are under significant stress and their status has become a concern.

With respect to salmon farming, I am sure you are aware how important it is to Canada as the fourth-largest producer of farmed salmon in the world. British Columbia accounts for nearly 70 percent of Canada's production: 17 salmon farming companies in the province were operating 105 farms when our audit ended. Their production has grown steadily in the last decade. Although there has been a moratorium since 1995 on expanding the salmon farming industry, there are indications that it may be lifted in the near future.

The federal government and the province share responsibility for regulating aquaculture in British Columbia under a 1988 memorandum of understanding on aquaculture development. The province's responsibilities include managing and developing the salmon farming industry. Fisheries and Oceans is responsible for regulating a number of areas, including conservation and protection of fish and their habitat. Under its 1995 Federal Aquaculture Development Strategy, the Department must also ensure that its aquaculture development activities are consistent with sustainable development.

Our audit looked at whether the Department was meeting its legislative responsibilities to conserve and protect fish, specifically salmon stocks. I emphasize that we focussed on the Department's role as a regulator and not on the merits of the aquaculture industry.

We found that in regulating salmon farming in B.C. the Department is not fully meeting its obligations under the Fisheries Act. Mr. Chairman, I would like to go over our observations briefly.

As a regulator of salmon farming, Fisheries and Oceans is in the business of managing risks. Salmon farming poses risks that include the potential impact of harmful substances on fish habitat and the effects of possible interaction between farmed Atlantic salmon and wild stocks. The Department operates at present on the assumption that salmon farming represents a risk to wild salmon and fish habitat that is low, overall. But we are concerned that it is doing little to monitor and assess the actual and potential effects of salmon farming.

Specifically, we found that Fisheries and Oceans is not adequately monitoring the effects of salmon farms on surrounding fish and fish habitat. This is particularly troubling given its responsibility for enforcing the Fisheries Act - specifically, sections 35 and 36, which prohibit the harmful alteration, disruption or destruction of fish habitat and the deposit of deleterious substances into water frequented by fish.

The Department has not determined how it will apply and enforce the Fisheries Act to protect fish habitat from the effects of salmon farming. A major factor is the Department's lack of scientific information that would enable it to establish criteria to determine what constitutes harmful alteration, disruption or destruction of habitat resulting from salmon farming. This is a concern as regulations are being developed by the province that may conflict with federal legislation. We urge the Department to take immediate action to resolve this situation.

The Department has assumed that salmon farming poses a low risk on the basis of a 1997 provincial review of salmon aquaculture - a review that reflected existing production levels and practices. However, the Department has not assessed the potential risk should the industry expand, nor does it have a formal plan for managing that risk and assessing the potential environmental impacts.

There are conflicting scientific views about the effects of salmon farming on wild salmon stocks and the environment. Moreover, there are very few studies that apply directly to the situation in B.C.

To deal with the possible expansion of salmon farming, the Department will need good information about the potential effects on wild stocks. And good information comes from both good quality research and effective monitoring. We found that it was not giving adequate attention to prioritizing research requirements in this area. The Department is doing some research, but we identified gaps in information - for example, on the risk that disease may be transferred from farmed salmon to wild stocks. We also identified gaps in monitoring - for example, the status of wild salmon stocks adjacent to existing and potential farm sites.

Further, the Department is not adequately monitoring the presence of escaped farm salmon. We identified that farmed Atlantic salmon are present in B.C. streams at all life stages. They also have successfully reproduced in some rivers. Our report questioned whether Atlantic salmon might adapt to local conditions and become established in B.C. coastal streams.

Finally, salmon farming has the potential to increase the stress on wild salmon stocks over time, especially if the industry expands. To ensure that sustainable salmon fishing can co-exist with the farming industry, it is urgent that the Department remedy these shortcomings in consultation with the province.

As I conclude, Mr. Chairman, let me provide six reasons why we have been so persistent about the need for more science and research.

First, science is needed to develop administrative criteria in order to determine what is harmful alteration, disruption, and destruction of fish habitat resulting from salmon farming.

Second, science is needed to help develop regulations and criteria for determining when deleterious substances are a problem and when they are not.

Third, science is needed to establish more credible siting criteria for salmon farms.

Fourth, if the moratorium is lifted and the aquaculture industry expands, there may be a call at some point for a cumulative environmental assessment under the Canadian Environmental Assessment Act. Science is needed to equip the Department and perhaps others to do such an assessment.

Fifth, research is needed to identify and assess the risks of interaction of farmed Atlantic salmon with wild salmon.

And finally, science is needed to address the potential risks of introducing transgenic salmon to farming.

It seems to us, Mr. Chairman, that the Department is committed to taking action to address the issues raised in our chapter. In this respect, the $75 million Program for Sustainable Aquaculture will be particularly important.

Mr. Chairman, that concludes my opening statement. We would be pleased to answer your Committee's questions.