The areas outside of the recognized, protected and conserved areas that are subject only to the laws of general application, like the Fisheries Act, for example, are not sufficiently protected to qualify for that definition under internationally recognized standards.
I see what you're getting at, though, in terms of the general language, which is that there is some degree of protection, but the level is not sufficient to qualify as a protected and conserved area, outside of the sites that we're talking about, which add up to the 15% right now.