Fisheries Committee on Feb. 15th, 2024

[The Chair, Liberal, Ken McDonald]

I now call this meeting to order. Welcome to meeting 99 of the House of Commons Standing Committee on Fisheries and Oceans. This meeting is taking place in a hybrid format, pursuant to the Standing Orders.

Before we proceed, I would like to make a few comments for the benefit of witnesses and members. Please wait until I recognize you by name before speaking. For those participating by video conference, click on the microphone icon to activate your mic, and please mute yourself when you are not speaking.

For interpretation, for those on Zoom you have the choice, at the bottom of your screen, of floor audio, English or French; for those in the room, you can use the earpiece and select the desired channel.

As always, please remember to address all comments through the chair.

Before we proceed, I again want to remind members and guests to be very careful when handling the earpieces, especially when your microphone or your neighbour's microphone is turned on. Earpieces placed too close to a microphone are one of the most common causes of sound feedback, which is extremely harmful to interpreters and causes serious injuries.

Pursuant to Standing Order 108(2) and the motion adopted on June 16, 2022, the committee is commencing its study of the population sustainability of Yukon salmon stocks.

Welcome, everyone. On our first panel, on Zoom, from Little Salmon Carmacks First Nation we have Chief Nicole Tom, and from the Pacific Salmon Foundation we have Stephanie Peacock, senior analyst. In person, from Kwanlin Dün First Nation, we have Brandy Mayes, manager of operations, fish and wildlife, heritage, lands and resources. Thank you for taking the time to appear today. You will each have up to five minutes for your opening statement.

I'll go to Mr. Arnold, who has his hand up.

[Mel Arnold, Conservative, North Okanagan—Shuswap, BC]

Thank you, Mr. Chair.

I would just ask that we carve out a few minutes towards the end of this meeting to discuss some future committee work, keeping in mind that we could potentially be interrupted by the bells and a vote.

[The Chair, Liberal, Ken McDonald]

Well, if everybody sticks to the time, we'll get through our panels, and if there are 10 minutes or so left over at the end, we'll go back to you, Mr. Arnold.

[Mel Arnold, Conservative, North Okanagan—Shuswap, BC]

Thank you.

[The Chair, Liberal, Ken McDonald]

I now give the floor to Brandy Mayes for five minutes or less, please—

[Caroline Desbiens, Bloc, Beauport—Côte-de-Beaupré—Île d’Orléans—Charlevoix, QC]

Mr. Chair, excuse me, you didn't see my hand.

[The Chair, Liberal, Ken McDonald]

Go ahead, Madame Desbiens.

[Caroline Desbiens, Bloc, Beauport—Côte-de-Beaupré—Île d’Orléans—Charlevoix, QC]

I was signalling, but you didn't see me.

[The Chair, Liberal, Ken McDonald]

No, I didn't.

[Caroline Desbiens, Bloc, Beauport—Côte-de-Beaupré—Île d’Orléans—Charlevoix, QC]

I, too, would like to discuss last week's notice of motion. We've already agreed on certain points, so I think we can do it quickly. We can also take a few minutes later, but before would be better.

[The Chair, Liberal, Ken McDonald]

We'll deal with both issues at the end.

[Caroline Desbiens, Bloc, Beauport—Côte-de-Beaupré—Île d’Orléans—Charlevoix, QC]

Okay.

[The Chair, Liberal, Ken McDonald]

Ms. Mayes, I go over to you.

[Brandy Mayes, Manager, Operations & Fish and Wildlife I Heritage, Lands and Resources, Kwanlin Dün First Nation]

[Witness spoke in indigenous language]

[English]

It is good to see you.

I would like to begin by acknowledging that the land on which we gather is the traditional unceded and unsurrendered territory of the Algonquin Anishinabe people.

Thank you to the committee for this opportunity to speak on behalf of Yukon River chinook and my people.

My name is Brandy Mayes, I am a proud descendant of the Tagish Kwan people, the original people of Kwanlin Dün First Nation and Whitehorse, Yukon. I belong to the Dakhl’aweidí clan, the Killer Whale and Wolf clan crest. The clan crest assures me I am part of the land and part of the water. As a beneficiary of Kwanlin Dün First Nation, my culture is who I am and where I come from. My family has lived at the headwaters of the Yukon River, Chu Níikwän as we call it, and Marsh Lake for generations.

Today, I am here in my role as manager of operations and fish and wildlife for Kwanlin Dün First Nation. I am also a land steward officer for my first nation. Additionally, I am the Canadian co-chair for the newly formed Yukon River Panel's traditional knowledge committee and first nations adviser to the Yukon River Panel. I have been involved in fish and wildlife management for over a decade, with a focus on indigenous knowledge, ethical harvesting and land stewardship.

The waterway now called Miles Canyon through to the Whitehorse Rapids was well known to generations of first nations people. Our ancestors called this area Kwanlin, which means “running water through canyon” in Southern Tutchone. Not only was this section of the river an excellent area for fishing, but well-worn trails on the banks of the canyon tell of centuries of people travelling overland in search of game. The banks of their river were lined with fish camps, lookout points, hunting grounds, burial sites and meeting places. Our values, language and traditions are rooted in this land. The headwaters of the Yukon River were home to the Tagish Kwan and a regular meeting place for people in other first nations to come to trade and fish.

Life changed forever at the turn of the century with the building of the city of Whitehorse. Our people have a long history and have always had a relationship with salmon. Unfortunately, Yukon River chinook salmon in Kwanlin Dün First Nation traditional territory have been depleted to a point that our citizens have voluntarily reduced or completely withdrawn from harvesting salmon.

This is one of the longest salmon migrations in the world. The impacts to our culture, our people's health, food security and the ecosystem, and thereby bears, eagles and others that depend on these returns, are devastating. Pressures such as overfishing, ocean commercial fishing, bycatch, climate change, predation and other ecological factors have taken a toll on the chinook returns.

The 1958 completion of the Whitehorse Rapids dam flooded our traditional fishing locations and put the productive culturally important Michie Creek and M'Clintock River stocks in an uncertain situation.

The water use licence for the Whitehorse dam will expire in 2025. KDFN is involved in the process and engaging our community. We are working to ensure that KDFN interests are represented and prioritized throughout the dam relicensing process. This includes the preservation or enhancement of KDFN environmental, cultural and heritage values in the Southern Lakes region, as well as the health and well-being of the KDFN community.

In 2023, the Whitehorse fish ladder saw the lowest count in history, with only 54 chinook passing through the ladder. The Takhini River, a tributary to the main stem Yukon River, counted just over 350. Those are nowhere near historical numbers.

The collapse of the salmon population is one of the greatest challenges this region faces. We know the Yukon River Panel and governments of the U.S. and Canada have a role in managing the treaty obligation, but the current management model isn't working. Chinook have been managed to near extinction.

The Alaskan ocean bycatch in the trawl fishery is impacting and intercepting vital Yukon River salmon, not to mention the impacts on the ocean habitat and ecosystem. Mass amounts of pink and chum hatchery salmon being put into the system are competing with the chinook salmon food source.

Our late Elder Louis Smith said, “You must save the salmon. If it wasn’t for salmon there would not be one Indian left in the Yukon. We would have all starved. Now it is our turn to save them.”

What are we going to do as a nation, Canada, to save the salmon? As a country, how do we rebuild these life-giving salmon, when they are facing so many barriers? To rebuild a population that has been depleted to the point of near extinction is going to take every resource we have. It's going to take every effort we have.

This includes all levels of government on both sides of the border. Stopping fishing is not enough.

Canada needs to dig deep into the impacts of the Whitehorse generating station and its impacts on salmon, freshwater fish, animals and habitat.

Canada needs to fulfill its treaty obligation to the Kwanlin Dun First Nation Final Agreement under chapter 16.3.2.2, the Whitehorse fishway redevelopment project.

Canada needs to continue to provide capacity, money and resources to the Yukon River salmon rebuilding strategy and continue to support Kwanlin Dün on the feasibility and development of a salmon stewardship centre. That will support all Yukon first nations in their rebuilding and restoration efforts as a gathering and teaching place, a restoration and research hub, and a centre for chinook restoration.

Canada needs to work with Yukon first nations and their governments to support cultural inclusion in the rebuilding strategy and to have equal inclusion of both traditional knowledge and science in all decision-making.

This rebuilding plan has to include all levels of government, both international and domestic, and the people who reside along the river and its tributaries. The salmon need this. It is not just science that has a role in how to recover these stocks. We need to recognize the people who have relied on the salmon since time immemorial, the people who have protected and who have had a relationship with our precious relatives for thousands and thousands of years.

We need a commitment to ensure that our Yukon first nation citizens and governments are engaged in a holistic and meaningful way. We need to collaborate and work together in honesty and respect. We need to recognize different government processes while keeping momentum alive and striving towards consensus in decision-making.

We need to uphold our shared commitments to the vital habitats of the Southern Lakes region and to our salmon. As Elder Louis Smith said, we must save the salmon. Salmon can be resilient if we give them safe passage, clean water, a healthy habitat and a safe environment.

Let's do this together, Canada. We need a wild river with wild salmon. These things bring purpose. It is our responsibility as governments, as first nations, as Canadians—as humans.

When we take care of the river—

[The Chair, Liberal, Ken McDonald]

Ms. Mayes, I have to cut you off there. It's gone way over the five-minute limit. Hopefully, anything you didn't get to say will come out in questioning.

We'll now go to Chief Nicole Tom from Little Salmon Carmacks First Nation for five minutes or less, please.

[Nicole Tom, Chief, Little Salmon Carmacks First Nation]

[Witness spoke in Northern Tutchone]

[English]

I would like to acknowledge the attendants in the room who have gathered here to pay respects to the Yukon River and the efforts to call the salmon back.

As a Northern Tutchone mother from the Little Salmon Carmacks First Nation, respect for the salmon has been ingrained in my DNA since time immemorial. As a child, fish camp was the most significant cultural bond and identity that was transferred every year. Our family would gather elders, children, youth, mothers, fathers, aunties and uncles, and our family bonds were solidified. Language, traditional laws, cultural values and oral stories were transferred from one generation to the next. This was the centre of the Northern Tutchone identity, tied to our keystone species, the chinook salmon, and our keystone place, the Yukon River.

There is a physical, mental, emotional and spiritual connection to a fish camp. The whole process from beginning to end is hard work. Physically, you are actively engaged with the water, setting net and carrying out various duties to run the fish camp. Mentally, you have time to reflect and concentrate on your well-being. You must be sober and in good mental health so as to not pass on any negativity to the salmon preparation for your family. Emotionally, your cup is full of laughter, wisdom, joy and love shared with the environment, salmon and family. Spiritually, you are paying respects to the original agreements with the salmon by following your traditional laws and values.

I quote from our history with regard to coexistence with other animals: Traditional law, or “dooli”, is the most sincere expression of respect that humans can offer. But what is respect? Consider the contrasting viewpoints of the Northern Tutchone and modern science. Whereas science views salmon as a simpler life form operating on basic instincts, much as a complicated little machine would do, Northern Tutchone consider salmon to be a distinct culture, a culture whose fortunes have been intertwined with the Northern Tutchone for countless ages in an intricate relationship that has not always been smooth. Crow, for instance, caught no salmon because he created a permanent barrier/trap across the river. He had to learn the lesson. And the salmon people were offended by their treatment by humans, so they took the little boy to the ocean to teach proper respect.

This, then, is how the Northern Tutchone view salmon, not as primitive animals that are almost oblivious of humans, but as equals, as intelligent beings that are fully aware of their surroundings and what is happening to them, as persons who deserve the same respect as the Northern Tutchone would receive if that person were to give up their life for the survival of another.

Thus, it deeply pains us to witness any instances of disrespect to the good salmon, on whom we rely every year for our health and well-being. We fear that their role in the rhythms of nature is being abused and that the entire ecosystem is in jeopardy. By bringing back traditional knowledge, we are striving to redress this imbalance, as we have done in the past, but we are no longer alone in this responsibility, and we desire that other cultures respect our concerns and work with us to achieve a more harmonious relationship with the salmon and all life.

I was recently told a traditional knowledge story that came from the Alaska territory. Elders knew that there would be plenty of salmon when there were plenty of monarch butterflies. This traditional knowledge was new to me and was never taught by my people. In curiosity, I researched the monarch butterfly and found that it became endangered in 2016. Soon after, our salmon declined drastically, so, you see, the knowledge held within the peoples of the land is of value and can help restore the policies that are to the detriment of the ecosystem.

The Yukon first nations would like to bring attention to the devastation that we are feeling in our hearts due to the decline of the Yukon River salmon. We ask that all parties engage in the habitat protection and attention to resources and capacity that are needed in order for Yukon to proceed in this endeavour. We can no longer argue or dispute the reason.

We must now work in unity before the salmon becomes extinct. This tragedy is a direct threat to our inherent rights to harvesting. This alone makes the Northern Tutchone people question what has happened to make it so. The mismanagement of the international fisheries is an infringement on our treaty. Our forefathers sacrificed lands for the right to feed their families with healthy homeland foods. The treaty must be honoured. Traditional knowledge tells us, “Don’t drag nets. Don’t mess with fish.”

These ancient laws have long been broken. We hold a responsibility to protect the rights to clean water and sustenance for future generations. We ask that Canada and the United States champion this initiative and that true reconciliation take place.

Mahsi cho for all your time.

[The Chair, Liberal, Ken McDonald]

Thank you.

We'll now go to Stephanie Peacock, senior analyst with the Pacific Salmon Foundation.

You have five minutes or less, please.

[Dr. Stephanie Peacock, Senior Analyst, Pacific Salmon Foundation]

Thank you.

My name is Stephanie Peacock. I'm a senior analyst with the Pacific Salmon Foundation. I am based in Whitehorse, Yukon, and I am joining you today from the traditional territories of the Kwanlin Dün First Nation and the Ta’an Kwäch’än Council.

The Pacific Salmon Foundation is a non-governmental organization dedicated to the stewardship and conservation of Pacific salmon in B.C. and the Yukon. We invest in community-driven initiatives and lead science programs that help inform salmon conservation and management efforts.

My area of expertise is in salmon population ecology. My work centres around compiling and analyzing salmon-related data to understand the status of salmon in B.C. and the Yukon. Through that work, I have gained familiarity with the status and trends of Canadian-origin Yukon chinook salmon—not just a uniform group of fish but one comprised of 12 genetically and ecologically distinct populations called “conservation units”.

Each of these conservation units has a unique evolutionary history and is an irreplaceable unit of biodiversity. Conserving this diversity within Yukon chinook is essential for resilience in the face of climate change. A recent study found that Yukon chinook return migrations to Canada were 2.1 times longer and 1.4 times more stable through time than they would have been if there was just a single homogeneous population.

Unfortunately, the reality is that we have very little information on how most salmon conservation units are doing. The publicly available data on Yukon salmon is focused on border passage. There is not a single estimate in DFO's publicly available spawner database for any chinook spawning in the Yukon since 2008. We need to improve monitoring and data availability at the scale of conservation units to be able to identify when and where actions are required to avoid local extinctions and loss of biodiversity. From the limited data that we do have, the recent declines in Yukon chinook seem to be reflected across conservation units.

Why are these salmon disappearing? There's no single cause. The likely suspects are the usual—decades of habitat degradation and loss. In the Yukon this is mainly due to mining and hydroelectric dams, commercial fishing and climate change. However, there are a couple of things that make Yukon chinook unique. Canadian Yukon chinook are the longest-migrating salmon in the world, and this increases their exposure to threats in fresh water. In particular, with climate change we are seeing unprecedented increases in river temperatures, which has correlated with reduced productivity of Yukon chinook over the past 28 years. This does not bode well, given the predicted impacts of climate change. Strategies to mitigate rising river temperatures and their impacts on salmon, such as the protection of undeveloped watersheds and wetlands, need to be prioritized.

Yukon chinook are bilaterally managed under the Yukon River Salmon Agreement of 2001, which recognizes that effective conservation and management are of mutual interest. However, harvest remains a primary focus of management, even as allowable catches have declined to zero. Further, the Yukon River Panel has failed to agree on management recommendations in recent years. In the face of unprecedented declines, we need to re-examine this agreement and sharpen the focus on biodiversity conservation and rebuilding.

The complexity of the life-cycle and management systems for Yukon chinook necessitates a multipronged approach to recovery. Management discussions must shift from border passage to preserving the biodiversity within Canadian-origin Yukon chinook. Canada can lead this discussion by supporting the monitoring and assessment of conservation units and improving access to data. There needs to be pressure on the U.S. to prioritize effective salmon conservation, as outlined in the Yukon River Salmon Agreement, and reduce any illegal fishing or incidental mortality of chinook.

Although research into the drivers of these declines must continue, we cannot wait for evidence to accumulate before taking actions to prevent the extinction of Yukon chinook.

Thank you.

[The Chair, Liberal, Ken McDonald]

Thank you for that.

We'll now go to our rounds of questioning.

To start off, we'll have Mr. Arnold for six minutes or less, please.

[Mel Arnold, Conservative, North Okanagan—Shuswap, BC]

Thank you, Mr. Chair.

I thank all three witnesses for their interesting information today.

Ms. Peacock, I'd like to start off with you, please. Can you tell the committee what type of chinook salmon inhabits the Yukon, Alsek and Porcupine rivers? Are these river-type chinook or ocean-type chinook? Do they spend time rearing in the river environment, or are they quick in migrating out to sea?

[Dr. Stephanie Peacock]

They are river-type chinook. As I said, because of their long migrations—these fish migrate over 2,000 kilometres upstream—they do spend time in fresh water rearing as juveniles before making it to the ocean, so they're considered 1+ or river-type chinook. Where they rear is variable, and because of the length of the Yukon River, it's not easy to pinpoint important rearing habitats for these salmon. They have a lot of area that they can use within the main stem of the Yukon.

[Mel Arnold, Conservative, North Okanagan—Shuswap, BC]

Are there what are often referred to as S0s, S1s, S2s, mixed stocks in those rivers, or are they all, basically, I believe they would be called S1s or S2s, or river-type fish?

[Dr. Stephanie Peacock]

I believe it's the latter. I don't know whether it is the case in the lower portions of the Yukon, but for Canadian origin salmon, yes, it's rearing 1+ majority.

[Mel Arnold, Conservative, North Okanagan—Shuswap, BC]

Is it known where these stocks migrate to when they hit the open ocean?

[Dr. Stephanie Peacock]

There is a fairly good juvenile chinook sampling program run by the Alaska Department of Fish and Game. I'm not intimately familiar with the details of that sampling program, but I know that they have found increased mortality at the juvenile marine stages in recent years as well, so that's certainly being looked at as a contributing factor to these declines.