Thank you for this invitation to appear before you.
My name is Carrie Brown. I'm the director of environmental programs at the Vancouver Fraser Port Authority. We are the port authority that's responsible for the stewardship of the port of Vancouver, Canada's largest port. Our mandate, as set out under the Canada Marine Act, is to facilitate Canada's trade objectives, protect the environment and consider the impact of port activity on local communities.
Since 2014, the port authority has been leading the way in engaging regional stakeholders on the topic of minimizing threats posed by shipping to at-risk whales in southern British Columbia. This includes initiating the enhancing cetacean habitat and observation, or ECHO, program. This is a regional collaborative initiative that seeks to better understand and reduce threats to at-risk whales through advancing research and voluntary threat reduction measures.
The ECHO program works collaboratively with marine transportation industries, scientists, indigenous individuals, conservation and environmental organizations, and Canadian and U.S. governments. BC Ferries and the Shipping Federation are members of our advisory working group. The program is recognized regionally, nationally and internationally as a model for effective collaboration and evidence-based decision making.
The program has focused its efforts currently on understanding underwater noise from large ocean-going vessels. As you've probably heard, what we know about the measurement and analysis of underwater noise is that it's complicated. The ways in which different levels of underwater noise affect the life functions of whale species are not entirely understood. To add to this complicated issue, each vessel has a unique sound signature. Operational or design mitigation that may reduce noise for one vessel may not be applicable to others: one size does not fit all.
However, knowing this, the ECHO program has made considerable advances in a very short period of time in understanding vessel-related threats to at-risk whales, including the southern resident killer whale, and we have engaged relevant interests to identify solutions and implement voluntary threat reduction actions. For instance, we have been working with stakeholders to formulate, trial and implement voluntary noise action measures. Such measures include both slowing down vessels and shifting vessel traffic away from key southern resident killer whale critical habitats. Vessel operator participation has been very high, on the order of more than 80%, and has demonstrated that voluntary measures can be an effective means of reducing underwater noise from vessels.
The large-scale voluntary measures implemented through the ECHO program in the last two years illustrate how much can be achieved through well-designed, adaptive and voluntary measures. The ECHO program fosters an environment for innovative thinking in which those contributing to the threats play a central role in developing solutions and taking ownership of and accountability for the implementation of threat reduction actions. We believe that the ECHO program's collaborative voluntary efforts can and will continue to yield positive results when they are implemented.
The port authority has expended and continues to expend considerable effort to better understand and mitigate the effects associated with deep sea vessels on cetaceans, particularly the southern resident killer whale, within and beyond our jurisdiction. The ECHO program is helping to address some of the key data gaps that are a focus of the amended recovery strategy for northern and southern resident killer whales; however, the most recent version of the recovery strategy acknowledges that much still remains unknown about resident killer whales and their critical habitat.
We believe that before government develops regulations around reducing underwater noise from commercial vessels through such measures as speed limits, time must be given to better understand science before imposing actions that could have unintended consequences on industry or the environment. There is a need to undertake research and consultation with subject matter experts to adequately assess both the benefits and impacts of environmental threat reduction. Any proposed regulations must be informed by a full understanding of not only the impacts on whales but the effects on navigational safety, operational feasibility, and commercial and economic growth.
We believe strongly that government should also give consideration to the potential implications of applying regulations only in Canadian waters. Whales do not recognize international boundaries.
For geographic areas located in proximity to international borders, a competitive disadvantage for Canada could be created, limiting the achievement of environmental benefits. Any measures that are implemented must have coordination from both Canadian and U.S. governments in order to ensure a greater overall protection strategy. Transboundary voluntary and adaptive efforts will likely yield much greater environmental benefits.
We would like to see government consider all vessel types in its mitigation strategy, not just commercial shipping traffic. The Salish Sea has seen and will continue to see an increase in all vessel traffic, including that of ferries and of government, recreational, whale-watching and fishing vessels. These vessels also have the potential to generate environmental impacts and should be given due consideration when addressing the cumulative environmental threat reduction.
Government should also consider both the anticipated short-term and the long-term environmental benefits and implications of regulation. Although adjustments to vessel operations on water, such as changes to routes or speeds, may in the short term reduce the effects of shipping on endangered whales, the long-term solution to vessel noise reduction lies in the design of quieter ships.
We believe that regulating short-term threat reduction solutions, such as vessel slowdowns, may consequently stifle progress and inhibit drivers for innovation and longer-term change, which could include the design of quieter vessels. The ability to create an environment in which innovation is encouraged will yield much greater conservation benefits regionally and globally in the longer term.
Alternatively, instead of regulation, we would encourage voluntary measures that provide vessel operators with choices about ways to offset their effects. For example, vessels could slow down or maintain regular speed by installing quiet technologies through critical feeding areas or could make an investment in vessel quiet design.
Last, regulation must be adaptable over time. As our knowledge of both threats and threat reduction measures evolves, there should be an ability for regulation to also evolve and adapt over time.
The Vancouver Fraser Port Authority commends the actions taken by the Government of Canada to deliver its national oceans protection plan and protect endangered species. We hope that we can continue to provide insight into collaborative and voluntary ways to reduce impacts to at-risk whales here on Canada's Pacific south coast and that these learnings can be applied across Canada and around the world.
Thank you. I look forward to your questions.