Evidence of meeting #5 for Fisheries and Oceans in the 43rd Parliament, 1st Session. (The original version is on Parliament’s site, as are the minutes.) The winning word was information.

A recording is available from Parliament.

On the agenda

MPs speaking

Also speaking

Adam Burns  Director General, Fisheries Resource Management, Department of Fisheries and Oceans
Kent Smedbol  Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans
Marc LeCouffe  Acting Regional Director, Resource Management and Aboriginal Fisheries Branch, Gulf Region, Department of Fisheries and Oceans
Frédéric Beauregard Tellier  Director General, Biodiversity Management, Department of Fisheries and Oceans
Brian Lester  Assistant Director, Integrated Resource Management , Department of Fisheries and Oceans

8:45 a.m.

Liberal

The Chair Liberal Ken McDonald

I call the meeting to order.

Good morning, everyone. Welcome to our committee meeting this morning. We're studying the status of the Atlantic herring and its trends.

Today we have the officials from the department to give testimony and answer questions. I will remind everyone that we will close up this portion of the meeting at 10:30 to allow 15 minutes for committee business at the end.

Here from the department, we have Frédéric Beauregard Tellier, director general, biodiversity management; Adam Burns, director general of fisheries resource management, and no stranger to the committee; Marc LeCouffe, acting regional director, resource management and aboriginal fisheries branch, gulf region; Brian Lester, assistant director, integrated resource management; and Kent Smedbol, manager, population ecology division, maritimes region.

You have 10 minutes. I believe, Mr. Burns, you might be starting.

8:45 a.m.

Adam Burns Director General, Fisheries Resource Management, Department of Fisheries and Oceans

I will start, and then I will pass it over to my colleague from DFO science.

Good morning, everyone.

Atlantic herring are a small silvery fish, which feed primarily on phytoplankton, zooplankton and small fish and larvae. The species swim with their mouths open to filter the plankton as they move through the water. Adults stay in the deeper waters during the day and come to the surface to feed at night.

Herring are a critically important species in the ecosystem and are a key forage species for many larger fish and for marine mammals, such as harbour porpoises, dolphins, whales and sharks. Herring can grow up to 44 centimeters in length and weigh up to 750 grams.

In Atlantic Canada, herring is harvested and processed throughout the Atlantic provinces and Quebec. The Canadian fishing season runs from April to November. The species is harvested with purse seines, tuck seines, fixed gear, midwater trawls, weirs and gillnets.

Atlantic herring is fished for both food and bait, and the catch may be exported smoked, fresh, frozen, marinated and canned in the same way as sardines, or for their roe. Products from Canada's herring fishery are destined for markets in Japan, the United States and the Dominican Republic. One of the most valuable herring products is roe for the Japanese market.

The department recognizes the Atlantic herring's importance as a key source of bait in the lobster and snow crab fisheries, especially given the current concerns about a shortage of fresh bait availability, as the mackerel fishery is only set to open on June 1 in some areas.

The main fisheries in Atlantic Canada are in Scotia-Fundy NAFO divisions 4VWX; the southern Gulf of St. Lawrence spring and fall spawner components; and off the west and east coasts of Newfoundland spring and fall components.

For several of these stocks, DFO's science advice seeks to reduce herring harvests to meet conservation and rebuilding targets. At the same time, stakeholders in many of these fisheries want to keep fishing Atlantic herring.

I'll pass it over to Kent to give a bit of an overview of the science.

8:45 a.m.

Dr. Kent Smedbol Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans

Thank you very much.

As he said, I will be providing a brief overview of status trends for Atlantic herring stocks, and I will also provide a little bit of an explanation on how status is defined in the department's precautionary approach framework.

The first thing is that it's important to keep in mind that Atlantic herring is a key forage species within the northwest Atlantic. It plays a very important role in the ecosystem and is a main prey species for a number of other fish species and for seals, whales and seabirds.

Atlantic herring are organized throughout the Canadian range in a series of somewhat discrete populations, and because of that, those populations are managed as discrete stocks. The organization of that management aligns with our four regions within the Atlantic zone: Newfoundland and Labrador, Quebec, the Gulf and the maritimes.

Atlantic herring that occur from basically the tip of Labrador down to the south coast of Newfoundland are organized as one stock managed out of the Newfoundland region. Herring found in the northern Gulf of St. Lawrence are managed in two separate units, 4S and 4R, out of our Quebec region. Herring in the southern Gulf of St. Lawrence are managed out of our gulf region, and that includes herring off the Gaspé, the coast of New Brunswick, around PEI and the gulf coast of Nova Scotia. Finally, herring that are located from the tip of Cape Breton along the coast of Nova Scotia into the Bay of Fundy and the Gulf of Maine are managed as a single unit out of the maritimes region, of which I'm a member.

An important piece of context is that all stocks are assessed with the best available information. When sufficient information exists, herring stocks are managed through our precautionary approach framework.

Very briefly, herring are allocated into three zones within the framework that are defined by the state of the health of the stock: the healthy zone, the cautious zone and the critical zone. There is a fourth category; it's called "uncertain". Stocks are considered to be uncertain if they are missing at least one reference point from the precautionary approach. The reference points are just defined as the boundaries that separate those three regions.

If a stock is considered to be in the healthy zone, from a science perspective there is really no concern about the status of the stock, and it's likely that most of the fishery objectives are being met.

If a stock is in the cautious zone, there is some concern from a science perspective for the status of that stock, and science advice would recommend a progressive decrease in removals from that stock as you move the boundary from the healthy to the cautious zone. That's to avoid doing serious harm to the productivity of that stock.

Finally, if a stock is considered to be in the critical zone, then its status is that from a science perspective, there is serious harm being done to the productivity of that stock. It's likely that there are effects to the ecosystem and to associated species and a lost opportunity for fishing. This can occur for quite some time, at least until that stock is able to rebound out of the critical zone.

That's a very quick overview of the precautionary approach framework.

I will go through the stock status for the various stocks very briefly.

First, starting with the southern Gulf of St. Lawrence in area 4T, there are two stocks within that unit. There's a fall spawning stock and a spring spawning stock. You will see that it is fairly common for herring to have spring and fall spawners. The fall spawning stock is considered to be in the cautious zone, and the spring spawning stock in the critical zone. It has been in the critical zone for some time, I think since 2004.

Moving on to the maritimes region in the Nova Scotia Bay of Fundy area, the major stock is a southwest Nova Scotia Bay of Fundy stock. Almost all of the harvest comes from that stock. That stock is considered to have moved into the critical zone very recently, just last year. The other components—coastal Nova Scotia, offshore Scotian shelf and southwest New Brunswick—have a status of "uncertain".

We then move to the north shore of Quebec, the northern part of the Gulf of St. Lawrence on the Quebec side. There are again two spawning stocks, a fall spawning stock and a spring spawning stock. Both have an uncertain status, but we do have acoustic indices for those stocks, and recently there has been a decline both in that index and in some of the landings.

Moving on to the other side of the northern gulf—the west coast of Newfoundland, area 4R—again we have a fall spawning stock and a spring spawning stock. The fall spawning stock is considered to be in the healthy zone and the spring spawning stock in the critical zone.

Finally, moving to the east coast of Newfoundland up to the coast of Labrador, there are five stock components within this management unit, and their status is considered to be uncertain.

On the next slide we have shown a few plots from stocks that are considered to be in the critical zone. The take-home message from this slide is that there are common patterns for stocks that are currently within the critical zone, in that previously they may have had a high abundance or have been in the healthy zone and over time have decreased into the critical zone and down to very low levels of abundance.

Finally, on the last slide, you see that there are a few take-home messages and key points in regard to Atlantic herring.

The first one is that biomass has steadily decreased for most stocks—not all, but most.

Recruitment, which is the number of young fish coming into the population or fishery, is currently low or decreasing for most stocks, and it's expected to remain low in the near future.

Natural mortality, which includes predation, may have increased in recent years, but this is an area of active research within the department.

Finally, the growth of individual herring in recent years is low relative to what has been measured in history further back.

That's all I have.

Thank you.

8:55 a.m.

Director General, Fisheries Resource Management, Department of Fisheries and Oceans

Adam Burns

Mr. Chair, I realize we're low on time. I have a few notes around the management status of each of the various stocks. I can provide this information or I can respond to questions now, if you'd prefer.

8:55 a.m.

Liberal

The Chair Liberal Ken McDonald

There's less than a minute left, so you probably wouldn't have much time to get into it. Hopefully it will come out in the questioning, or you can provide it afterwards for the committee.

8:55 a.m.

Director General, Fisheries Resource Management, Department of Fisheries and Oceans

Adam Burns

It's in the prepared remarks that we provided.

8:55 a.m.

Liberal

The Chair Liberal Ken McDonald

Thank you.

Going now to questions, we'll start off first on the Conservative side.

Mr. Arnold, you'll have six minutes or less, please.

March 12th, 2020 / 8:55 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

Thank you, Mr. Chair, for having such a broad contingent here this morning. We'll be able to get all of our questions answered, I'm sure.

Thank you for being here.

My first question is this: What are thought to be the major causes of the continuing stock decline?

8:55 a.m.

Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans

Dr. Kent Smedbol

Thank you for the question. There isn't a simple answer to it. There are a number of things that could come into play.

One, of course, is continued fishing.

The second is that in the last decade or so we have seen general warming in ocean conditions from the Gulf of Maine into the Bay of Fundy, the Scotian Shelf and the Gulf of St. Lawrence.

In that same time, we've also seen a decrease in the weight at age of individual fish. They're skinnier than they have been in the past at the same age.

There has also been a general decrease in the length at age of herring. If they're skinny, they're also shorter at the same age. This can have a population-level effect, because the number of eggs or sperm produced by individual herring is a function of both their length and how fat they are. If you have the same number of herring and they are smaller in size, the maximum number of eggs or sperm that can be produced is less than it would have been if they were growing faster.

It's also possible, as noted in my “key points” slide, that natural mortality may have increased. It could be due to predation, or it may not be. This is an area of active research within the department, and the answer isn't settled.

Finally, the number of fish coming into the populations is fluctuating, but it has remained relatively low compared with the case in previous years. This may be a function of a number of things, some of which I've just mentioned.

There is not, however, a smoking gun, if you will.

8:55 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

Thank you. You've hit some pretty broad topics there. One of them is natural mortality. That can be pretty broad-ranging in scope.

Can you delve into what some of that natural mortality might be due to? Starving to death is one thing, if they're running out of food. Being eaten is another thing. What natural mortality would you be referring to?

8:55 a.m.

Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans

Dr. Kent Smedbol

Thank you for the question.

This is an area of active research within the department. We don't have a strong linkage with any particular potential causal agent at this point, other than to say that there are a number of things we're looking at.

8:55 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

What would those things be?

8:55 a.m.

Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans

Dr. Kent Smedbol

The first one is increased predation. That is an area of active research. Others are changes in the ecosystem that may be caused by climate change or just a change in the community. None of these have been directly linked to herring production or to herring changes in abundance.

We don't really have a solid answer for that question.

8:55 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

Have they been indirectly linked?

8:55 a.m.

Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans

Dr. Kent Smedbol

They have not yet, to my knowledge. It is an area of active research.

8:55 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

How long has that research been going on?

8:55 a.m.

Manager, Population Ecology Division, Maritimes Region, Department of Fisheries and Oceans

Dr. Kent Smedbol

The latest efforts have probably been for the last several years. It's been off and on for.... It's a general question within fisheries science.

To my knowledge, the specific issue with herring probably has been just the last couple of years, but I don't have an intimate knowledge of all the work that's being done on herring.

9 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

What other measures have you taken to try to rebuild the stocks, other than reducing fishing pressure?

9 a.m.

Director General, Fisheries Resource Management, Department of Fisheries and Oceans

Adam Burns

In terms of the management tools we have at our disposal from a fisheries management perspective, managing the fishing effort is the key tool.

9 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

Is it the only tool?

9 a.m.

Director General, Fisheries Resource Management, Department of Fisheries and Oceans

Adam Burns

As my colleague from science has noted, we don't yet have specific science advice around the specific drivers of decline, other than that fishing is obviously resulting in mortality. We know that with certainty.

It really is difficult for us to implement measures to address other sources of mortality when we don't yet have a clear understanding of what those may be.

9 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

How clear does that science have to be before you could take those other measures?

9 a.m.

Director General, Fisheries Resource Management, Department of Fisheries and Oceans

Adam Burns

That's a difficult question to answer. I wouldn't have a specific policy that I could point to that speaks to the level of certainty that we'd need.

Obviously, we make management decisions based on the best available science. Once there is scientific evidence that may point to one or another additional driver, those would be things that could be considered at that time.

9 a.m.

Conservative

Mel Arnold Conservative North Okanagan—Shuswap, BC

I'm glad you mentioned the best available science, because I believe your colleague's words were “the best available information”.

Is information from the fishermen considered in those management decisions to any great extent, or are you simply relying on the science that is being done by the department?

9 a.m.

Director General, Fisheries Resource Management, Department of Fisheries and Oceans

Adam Burns

Certainly we try to base our decisions on the best available science. However, we do engage with the fishing industry and indigenous groups on a regular basis. Their perspectives from traditional knowledge and local knowledge is absolutely taken into account and integrated into our analysis of the best possible management measures to conserve the stock.