. /
Newfoundland
and Labrador
Round Table
, : on the Environment
Confederation PO Box 8700, Tel: (709)
729-0047Fax:
E-mail: ihealey@env.gov.nf.ca .
National -.
Round Table
1 Nicholas
Ottawa,
Ontario,.Canada,
Kl N 7B7
Tel: (613)
992-7189
Fax: (613)992-7385
E-mail: nrtee@eb.apc.org /
The views expressed herein are those of the a&hors-and or their members.
on Environmental recycled
Choice
Design -and layout: Kindi Chana, National Round Table on the Environment and the Economy ., -,
over 50 percent
10 percent
post-consumer
inks.
eport of the Partnership on ustainable Coastal Communities Marine Ecosystems in ewfoundland and Labrador
October 1995
Preface
The collapse of the cod fishery off the coast of Newfoundland ment. The impacts and implications 1994, both the National Labrador on an ecosystem,
and Labrador
develop-
on an economy
and on a way of life never seem to stop. In the fall of (NRTEE) and the Newfoundland and marine ecosystems and in
look at the fish crisis from the perspective Newfoundland and Labrador.
cod could be analyzed and the prospects of promoting level. at the community
NLRTEE shared these goals and also saw the potential of planning for sustainability
To this end, both Round Tables selected two of their members from the fishing industry avoid any suggestion sentatives, Bernadette in the province.
committee.
Dwyer from the Fogo Island Fishers Co-operative, on Sustainable Coastal Communities
the most tangible result of this process. It is the voice of the communities that this voice gets as wide an audience deliberations and decisions surrounding these vital issues.
M.D., Chair
Judith Rowe& Chair Newfoundland Environment and Labrador Round Table on the and the Economy
Partnership
membership:
Wilfred Bartlett, fisher Tom Best, fisher Bernadette Dwyer, Fogo Island Fishers Co-operative, (Chair) Diane Griffin, former NRTEE Member and Executive Director of the P.E.I. Nature Trust Elizabeth May, NRTEE Member and Executive Director of the Sierra Club of Canada Mary OBrien, NLRTEE Member andfish plant owner Martin von Mirbach, NLRTEE Member and Sustainable Development Centre for Forest and Environmental Studies Chair,
Dr. Steve Thompson, former Senior Policy Advisor, NRTEE Secretariat Sean Kelly, former Policy Analyst, NLRTEE Secretariat
Dedication
This report is dedicated to all those who so willingly attended our meetings and shared their thoughts with us.
fishery debate was viewed by some as problematic. round table had ever before gone into small comto explore public views on sustainability. conscious of the need to bring someand not merely to repeat pre-
of the community.
As well, we probed
valuable by people in the 13 communities enlisted the services of the Extension Development Co-operative
and advance work. Thanks to their efforts, we were able to identify and personally community meeting. interest extended invite all key stakeholders includes and indeed within a small radius of each The term stakeholders all with an Participation although the At a typical
in the survival of the community. well beyond the fishing industry, the discussion.
from a local MHA or fish-plant Our meetings began in February and wrapped up in early
cabinet member
workers and fishers, womens committee local TAGS (The Atlantic Groundtish council. We generally held meetings the afternoon, least a rectangle interaction. ly discussion. In each community, of questions, sustainable questions we organized to speak through assembled around
representatives, of town in
June. We faced just about all the travel obstacles one can imagine in coastal Newfoundland Fogo, fogged in at St. Anthony, whiteouts tality everywhere ence magnificent we were iced in in in blizzard warm hospito experiengulfed
a round table, or at
of square tables, to allow more direct had several opportunities as well as engaging in a livego-arounds,
we went and wish to extend thanks to all scenery, towering icebergs and inquisisession
Every stakeholder
tive caribou and moose. We started our February discussion around the with a cluster of meetings province, continued Harbour.
in the appendix).
Through
a series and
the island of Ramea, St. Georges, Burnt Islands with meetings on Fogo Island, in St. Johns and up at
we explored
what had made the community again in the future. These of peoples hopes, planned to although
in the past, what made it unsustainable were followed by discussion These sessions,
in Renews and a meeting with the young people of Petty In early May, we visited Cooks Harbour Peninsula, the Northern and then flew to coastal Labrador
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
in Forteau and Makkovik. in Marystown were selected to represent and different as well as communities consultations,
distillation
heard recommenda-
it would be for people facing the same crisis for the future. But, in parts of
but relatively isolated from each other to be brought together to explore their options
our view, this became one of the most gratifying the experience. democracy will continue and sustainability and flourish. planning,
From the point of view of grass-roots we hope that the our meetings through
a large wrap-up
session in St. Johns on Oceans Day, June representatives conclusions, from each of the attempting a
8. We invited community
places in which we had held sessions. At this session we tested some of our preliminary
I-IAT SUSTAINABLE
In this Partnership, throughout conversation
I
to examine the sustainand marine ecosystems and Labrador, we started the by asking the question, sustainable in the past?
established
is totally caught up in the life of the ocean. in every community visited by the the first answer was Fish! Over and over, was the essence of the fishery as the of Newfoundlanders. It
exception,
we were told, The fishery was more than a job. It was our life. In that statement defining
defined what they did for a living but, arguably more important, it defined their sense of identity, their culture, some
of years before, to cling to life on the rocky and coast. and some people in the sus-
tainable? Many would assert that these communities were never sustainable. But when posing a question in communities before the about
the past we found that the discussion predominance dependency. residents of social programs,
made them sustainable. In assessing the term sustainable, needed. To our Partnership, mous with lucrative
Fish,:ng banks
some benchmarks
are
sustainable
or profitable
or able to survive.
off Newfoundland
of the Brundtland
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
the harp seal harvest, that sustained communities. The fishery that sustained small outport communities
hundreds
of small
Newfoundland
and Labradors
fishery itself was more than cod. Early fishand seals; later, turbot, flounto include, among
eries focussed as well on salmon, herring the range of species caught broadened der, squid and shrimp. World Commission 1987) which defined sacrificing needs. For the most part, the coastal communities, Brundtland years. In the beginning, European or at least at the point of initial were definition, have been sustainable by the for 500 on Environment sustainable and Development, as that without generation and geography. winter inshore schooner others, lobster, capelin, redfish, lumpfish, mined by climate, ice conditions, development
the modern-day
to meet their
ery. It was an ice-free coast with a 50-week fishery, including the offshore schooner fishery. In other words, it on a year-round basis. offered nearly full employment,
unbelievably Newfoundland
such an enormous
The seabird colonies were such a feature of the Atlantic coastal ecosystem approached that early explorers knew they had flocks
land through
filled the seas, along with to rememFrom St. Johns north and to the Labrador provinces east coast communities coast, the
seals and many species of fish. It is important ber that the ecosystem tem found by Europeans residence, anything the Beothucks. exterminated great auk -
It included
for its eggs, its oil, its feathers, There was an industry walrus. The The bowhead and are still
able to fish seasonally in the groundfishery. pations, both for cash and subsistence, alive. A major traditional
that could be derived from this extremely creature. Islands based on hunting Labrador.
fishery was seasonal, so too were a myriad of other occuthat kept the activity was the by a seasonal seal at
communities
Basques ran a major whaling station, the largest in the world, at Red Bay in southern and right whales -were extremely nearly exterminated,
seal hunt: income was supplemented fishery in much of the province. the community a time. The fishery on the western
rare. Other whale species, such as humpbacks, but in the cod the centuries,
fins and blues, were also seriously over-hunted, more recent times. But through fishery was sustainable.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
flounder,
herring,
developed the
with mines, pulp mills and small-scale Dominion bankrupt of Newfoundland The economy with a thriving
manufacturing,
reliant on a host of other seasonal activities that supplemented seasons. Life was never easy in Newfoundlands early days of settlement, ment, the merchant outports. In the incomes and larders during the non-fishing
was by 1933 essentially was established to study was, however, merchant increasingly prepared to
few mines and pulp mills. As Newfoundland enter Confederation, first Premier Joey Smallwood of the Province of Newfoundland)
oly over virtually every aspect of the local economy. set the price for fish they bought munity, munity,
lives of fishers and farmers. They in his view. The desire to end the of outport life led to the drastic The industrial brought to many parts of onto notion
they set the price for goods bought by the comand they extended credit, allowing fishers to buy of next seasons fish. Women part of their surwith raison were dependent was supplemented
of attempted
diversification
kept gardens which were an important ing livestock. The gardens themselves the sea, as they were fertilized
economic
that ignored the realities of the market. Thus, many of these post-Confederation down or drastically moratorium. of economic developments shut
reduced
employment
So in some communities,
that fish had made their community other answers: an infrastructure including an attempt Throughout Labradors
sustainable,
butter-making,
preparing
We used to have a mine and We used did develop importance, etc., in that was of paramount
ery itself involved the whole family, with men bringing the cod, women working the flakes, children cod tongues. Bartering
roads, bridges, schools, cottage hospitals, to remedy 400 years of neglect. most of the history of Newfoundland small coastal communities, brought
1949,
vices, such as boat-building and other forms of skilled labour, involved a complicated set of craftsman-client tionships ties. There were few idle moments life. Over the last periods
500
safety net. As Confederation sion and other benefits communities beginnings grams overnight. after
life did change. But the on social prowas we visited, the of fish in the region,
rela-
dependent
In the communities
sustainability
on social programs
in traditional
linked with the decline of availability as well as to the buildup and early 1980s.
of notable Whether romanticizing the past or accurately reflecting our meetings comthe change in values, many people attending expressed prosperity
of severe deprivation,
tors including
wars, depressions,
and localized fluctuations were hard indeed. From the beginning, abundance
munity spirit in those bygone days before the relative of recent years. They recall greater co-operawe had in the past was tightly knit. We seasonality and natural variability By the was Newfoundland in tion. The community
of resources
Everyone helped each other. We had a great deal of bartering. And weve lost it in the name of prosperity. started living according to want instead of need.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
In discussing
of coastal communidates that were referred 1949 Confederation program of the of the
munities
that depended
we moved into the next phase of our discussion What made your community unsustainable?
by asking,
late 1960s. Then there was 1977 and the extension 200-mile Exclusive Economic
about
1980s. Then, of course, there was the moratorium announcement on July 2,1992.
with a resounding
perilous
and cultural status to the collapse of the codfish stocks. the focus of our Partnership for future sustainability, was to define we also had a mancrisis as a case But,
opportunities
it was simply not possible to discuss without a full debate about the causes upon which hunfor hundreds
had depended
It should surprise no one that community dominated In identifying what had made the community dependency sustainable, these twin issues of strong community absence of government comments Community of round-table residents participants. frequently to the fact values and an ranked high in the Over the past two decades these incredibly have been brought
meetings
were
by the issues of the fishery and its demise. rich cod stocks One of the to the brink of extinction. resources,
also referred
metric tons (M/T), has been allowed to decline to virtual oblivion. mirrored ground&h This annihilation species. of the northern cod has been in other
that historically,
fishing technology
would have a lucrative fishery today. The fishery was sustainable for so long because we lacked the technology be totally destructive. has characterized When we acquired around 1950, we began the destruction fisheries throughout of resources that technology, that
900 .,
,_
2J3KL COD
Islands, one resident fish. He referred the inshore come inshore. centrations
caught fish. We got into trouble when we started hunting here to the relatively passive nature of to chase the
200 i, . 100 .; ; ,_. ._ ._ . . .
cod fishery. The fishers waited for the cod to They lacked the technology to track them down in great conareas. Fish as we hunt them
p ii, t;t 0 ,z ..t.tt b~.-.kI ,-I .-,-I ,:, -I , I., I-I 1 ! 1 I I I 1 . I1 1985 1990 1995 1970 1975 1960 1965 1980 YEAR
in the spawning
now have few places to hide. But the fishery was changing defining moment rapidly. There was no one
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Members
of fishing-dependent
communities
Up until the late 1950s or early 196Os, with the exception of a small schooner Canadians fleet out of Nova Scotia, the only small-
that this could have happened eries management. cries of warning communities Moreover,
in an era of modern
We heard over and over again that the from the small inshore fishing-dependent believe as the crisis worsened. that communities
were ignored
cod stocks were also traditionally and France. The introduction primarily
we heard repeatedly
their views are still ignored believe that when a resource becomes commercially causes of such devastation never repeated.
by those in power. They of such historic be identified, abundance that the and
heavily powered-vessels,
origin, equipped
extinct, it is important
discussed
dragger fleet was capable of fishing in deeper accessible and of locating huge concentra-
water than had been previously and exploiting in hunting tions of cod wherever
fashion -
overview
they assembled.
Historical northern
record indicates
that fixed-gear
landings
of
This harvest was achieved within the constraints existing technology ated with the preparation
of the
and the limits set by the labour associof salt fish. The annual harvest These such in the The invasion of foreign draggers in the early 1960s comupon the spawning aggregations. mitted a massive assault record indiany a one-time-only
was always subject to some degree of fluctuation. fluctuations were related to a variety of factors chaos of two World Wars. historical as the price collapse in the I89Os, the depression 193Os, the economic Notwithstanding
The peak catch was an astronomical these fluctuations, landings apparently anomalous cates that fixed-gear of cod could, without excessively high landings declines in Newfoundlands a mere fraction Inshore
by foreign draggers led to drastic inshore fishery, reducing it to high sustainable catches.
of 350,000 M/T.
of its historically
innovations,
introduction
up to 50 miles from shore. Even with enormous in fishing effort, however, ous declines far deeper than anything ed. Catches fell in 1974, for example, previously
increases record-
suffered seri-
to 35,000 M/T.
led Canada to declare a 200-mile management opportunity to rebuild the stocks and establish long-term
1977. The 200-mile limit was viewed enthusiastically aimed at ensuring viability. As we heard in
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
the post-1977
expansion
of the Canadian
offshore
industry
was mandat-
mentality.
If the foreigners
of millions of federal tax dollars of direct assistance were poured into offshore vessels,
conservation With
sures, a catch of 400,000 M/T was reasonable. improved significantly bonanza technology,
gear and plants. In 1979, the Canadian on the southwest Scotia) was deliberately offshore dragger fleet (based largely and in Nova cod providinto the northern
The scientific
stock(s) for the first time. The federal government ed subsidies through duction essentially
M/T per year catch was set forth in the Fisheries ministers Policy for Canadas Commercial 1976 in anticipation Fisheries, released in of the 200-mile limit. The policy was the northern cod growth in a harvest at
various devices. One such device was the introin 1982 of Enterprise Allocations (EA), which cod. gave the holder title to so much northern a shift from the notion of a common and resultof of the rest. 100 the retention
Its stated objective was to engender biomass capable of sustaining levels. The management
the spawning
to facilitate achieving the policy goal. Simply, the an annual harvest of about 20%
Also, in the early 198Os, DFO licensed approximately inshore, from the Port au Choix area on the Northern
biomass
They were licensed to drag for fish on Newfoundlands southwest coast. meetings, the post-1977
for Northwest
As we heard in our community enthusiasm brought 1987-88, there were roughly By the time of the moratorium ber had doubled or, including
many people into the fishery. In 10,000 people in the fishery. announcement, that num-
there was a marked shift from of last resort to and something advanced,
The government
licences for species that were only fished over a very short season, such as squid and capelin. policy through As well, government the Fisheries Loan Board made it possible help what many
for just about anybody to buy a boat. Many fish plants were also being built with government in communities Members of the House of Assembly now recall cynically as a great way for to get re-elected. acceptance of a seain as
sonal fishery coupled with unemployment These and other optimistic projections of rapid stock The fishthe off-season. distributed expectations incomes Labrador. Government dependency
insurance increased
in the industry.
more people came into the fishery, more licences were and more fish plants were built. Material grew as people became accustomed and to higher and greater buying power. Rising expectations North Americans in general now expect air
mile limit there was going to be so much fish that the inshore would not be able to catch it all. In the expectation-of landings at least comparable to those of the 195Os,
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
conditioning incomes
in summer
food
There had never been a failure in the inshore nitude experienced stock collapsed Compounding
of the mag-
after foreign overfishing. the problem, smaller cod were being stock was in serivisited a num-
part of the social fabric, with real costs to long-term sustainability. In hindsight, it is easy to see that management overly optimistic. strategies of Yet an caught. This indicator were themselves spawning entire industry The estimates estimates. that the spawning Our Partnership
ber of fish plants where we toured the idle equipment. There was abundant adapted new filleting machine processing evidence of the way an industry A capable of replacing also or and continued to profit from a dying resource. had been purchased,
and restruc-
tured on the basis of the estimate was in underestimating the entire ecosystem pre-200-mile in our community foreign overfishing
the damage that had been done to due to the foreign draggers in the
eight to ten people in the fish plant. The industry adapted to smaller fish by shipping
limit period. The irony was raised frequently meetings that once having banished from within our 200-mile limit, the foreign example of over-
merely headed and gutted for later drying in Denmark Portugal. Two clear warning individual catch -were indicators the reduced size of the
technology.
fish landed plus the overall drop in the inshore ignored. If they had been canaries in the
Drastic
declines
in inshore
catches
aside the dead birds to get at the coal. As we heard over and over in small communities, inshore fishers were told draggers were by the government be doing something continuing regulators that it was they who must
266,000 M/T in 1984. Small improvements under Canadian experience management reinforced
to bring in large catches. The irony is that the that was wiping out the
cod stocks acted to mask the crisis. As sonar and radar allowed even the inshore to improve of
catches before the same problem From a peak in 1982, despite vastly
catches, the level of landed cod gave a false impression the health of the resource as a whole.
dramatically
Many fishers, plant workers and concerned dependent attempts on the inshore the drastic decline in inshore
citizens
to gain the ear of various government equipment dragger fleet into the harbour
Basques. There were sit-ins and protests of the inshore yield remained young journalist meeting Even in the worst years, 1890 to 1924, the inshore caught less than 180,000 M/T in 1987 and rarely dropped never declining inshore
catches, steep descent, while the offshore within the expected range. Moreover, as a recalled in one of our sessions, in every fishers blamed the draggers for to proto draggers never catches and urged government
she attended,
seemed to make it to the evening news, or even to the The failure of those within com-
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
munities
who tried in vain to avert the crisis has had the effect of creating a sense of powerlessness. in
Committee
(CAFSAC) concluded
undesirable
ous years FO.l level was actually 125,000 M/T and not 293,000 M/T. Federal government concluded additional 20%, bringing scientists on CAFSAC of FO.l to
The view that you cant fight city hall was reinforced spades by the way the views of inshore missed out of hand. Powerlessness unsustainability. Community Association frustration concerns, Memorial views on these matters (NIFA), founded fishers were disto
contributes
100,000 MIT. are borne out by hisInshore Fishers to a growing and their from audit of As many in communities recall with real emotion, the
lost our fish. The UI kept people If not for UI, we would not have
in response
issue of setting the quota was more than a scientific matter. A decision to drastically reduce the quota was ultimately the Fisheries ministers to make. The political nature of decision making was seen by many as one of the proximate causes of the decline of the fishery. Where politicians had for the last decade used the fishery to get re-elected, they were not interested conservation measures in that that set
that no one spoke for the inshore went so far as to commission University to conduct In December biologists a technical
satisfied
and
kept them
from
NIFA hired a group of independent DFOs assessments. Keats Report lations were incorrect
complaining
as the stocks
went
down
again.
And
then
the gov-
concluding
ernment
would
use that
against
fishing mortality
us. Wed
tell them
fished. But in 1987 and 1988, despite these warnings, DFO actually set a higher TAC. Although it seems clear that the views of the inshore fish-
going
down,
and
theyd
say,
But
everyone
in your
area
qualified
would accomplish
the reverse.
for UI . B The mare we became
ers were ignored on issues of setting quotas and allocations, it is not so clear that they were without effect. One analysis presented the large corporations to us concluded any political that while
held sway over political decisions from fishers was In terms of to qualify
relating to the TAC, the political pressure dealt with through long-term defeating improved sustainability,
was
heard.
social programs.
on the fishing of northern was declared. munities attribute repeatedly we visited do not the moratorium
cod
stokeholders
meeting,
quelling what would have been louder howls of protest cod stocks in the inshore. we visited, many believed that complacency social programs was a major con-
Fisheries Products
state of unsustainability.
(v) Acknowledgement
It was not until 1989 that federal scientists acknowledged they thought,
there were serious errors in the stock assessments. actual fishing mortality
that because the stock was smaller than since 1979 was dou-
ble the target level of FO.l. In other words, the stock was dramatically The Canadian smaller than predicted, Atlantic Fisheries and certainly not sufficient to justify a TAC in 1988 of 266,000 MIT. Scientific Advisory
Sustainable
Coastal
Communities
and
Marine
Ecosvstems
in
Newfoundland
and
Labrador
an environmental
assessment
used again. Many argued that draggers should simply be banned. A number expressed Partnership. of things are remarkable in the 13 communities about the views visited by our views on many on a numenvironmenTypical of those comments was the following It is the for the colsustainmisre-
from a fisher at our Burnt Islands meeting: dragger technology that is most responsible
lapse of the cod stocks. It leads to catches beyond able levels, it has huge by-catches, porting and misjudgment and encourages of stocks.
unanimous
ber of points. Not once did anyone suggest that the collapse of the cod fishery was due to abnormal tal conditions, Repeatedly through we were told that the process of dragging areas must have been damaging to the such as cold water. Not once did anyone spawning
suggest the collapse was due to the actions of foreign fleets outside the ZOO-mile limit. Not once did anyone suggest that seals had eaten all the cod. Nor did anyone in communities advance the theory that the cod stocks had merely gone somewhere In our individual capacities, members Partnership have heard by the and else.
reproductive
process of the species. Of course, fish are in such concentrated aggregations and impact overfishing. Interestingly,
very catchable
this fact alone could encourage the most recent assessment Conservation yet known
of the environmental
of various gear types from the Fisheries Resource Council concluded (FRCC94.TD.4, that the impact of the aggregation 1994). other is not gear being towed through a spawning December
But despite the strong views on dragger technology, types of gear and technologies Many at the community the past. The common discarding practices meetings
While not
large quantities
of fish dead over the side were of whether including they used certhe controcontrohad to
denying that elements of some or all of the above may be factors in the troubled recov-
bility of nearly all fishers, regardless fixed or mobile gear. Depending tain other gear types were discussed,
ery of the stocks, we found it notable that such fashionable ries, including often quoted too few fish, do not resonate most affected. What was said in every community overfishing destroyed was that domestic adequate time to theothe Too
versial gill nets and Japanese cod traps. Though versial, it was noted that these inshore as susceptible be reported to misreporting for DFO purposes. pronounced
As well, certain species experienced over-exploitation. For example, purse seiners sold herring shore, in exchange herring Flounder,
localized
fishery was virtually wiped out in this fashion. haddock, American plaice, sole, turbot, redfish
recover when Canada set the ZOO-mile limit. It was also expressed ecosystems technology frequently that the technology outpaced the
and many other species were mentioned or currently being, severely overfished. expressed a concern
assaults. The
many communities
with the disaster in the habitat and that this must undergo
be no capelin fishery, as capelin is at the base of the food chain. As one fisher in Forteau put it, Were destroying the cods food source. How in hell can you raise a herd of cattle with a little handful of grass?
offshore was that of dragging the ocean floor. Most people suspect that draggers damage bottom seriously impacts many species. In fact, in every community it was asserted that dragger technology
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Certain attitudes
with the
CONCERNS
collapse of the fishery. A denial of personal was cited often, encapsulated in the attitude,
responsibility Dont and of issues were raised that are vision of its sustainability. In or future sustainability, relevant to a communitys addition many people expressed
blame me, I had a quota and I caught it. Personal collective greed were often mentioned, about the declining with the insidious dependency. The erosion of community
as was apathy
about the future. In this section, we will review some of the themes that arose repeatedly. be carefully respected These viewpoints must if any plans for the future are to by the commu-
have a reasonable
nities most affected. As a preliminary versally expressed that our Partnership just another without point, we concern would be
year, you just see how much If we hod o piece of land and
tightly knit. We all helped each other out.... But we lost that spirit in the name of prosperity. according by government Those to want instead of to need. It was encouraged and its nearly destroyed members
community
would
grow
find themselves
being
done
on
quently expressed
ever people had participated in a task force or public hearing process, the report did not seem to reflect their concerns. Given an understandable level
the ocean
floor.
unsustainability.
was that the loss of people from comto making them unsustainable. or Calgary was marked made it that
Fisher,
Mokkovik,
Lobrodor
now contributed
11
we were pleased
that so many gave our effort the benefit of the doubt and troubled themselves to attend meetings. When challenged
on why anyone should expect the round table Partnership to be different from previous was that to reportindeed the only, cause of fishery Overfishing is the overwhelming,
we were committed What made your community on what caused the colwere the same.
ing what we heard in commuThe answer to the question unsustainable? nities as fairly and completely as possible. We also encouraged people to use our sessions, at which a broad spectrum of people from the community gathered, as a springboard for positive action that could be initiated decisions promise. did concentrate
collapse.
lapse of the fishery, as if the two questions But in answering nity unsustainable Frequently values, increased ultimately communities the question people went beyond government
of what made the commuthe fishery. and a pervasive or not individual about an erosion of
Fisheries Partnership
scientist meeting,
Dr.
Rum
Myers,
St. Johns
dependency
sense of powerlessness.
in the community,
without
waiting for
The next section of our report is dedicated on the hopes, fears and concerns dependent communities of remote, in Newfoundland
tone we maintained
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
The predominant
the
Opinion
when it came to the fish no one who believed that Many stark fears were viewed
same issue: the return of the fishery. It is clear that the vast majority of people in coastal communities hope des-
left to spawn was a widely held view. It was fascinating hear Ipeople in the course of a single statement from a certainty vacillate
As for the future, we often heard about peoples queasy dread that the cod fishery will be reopened to political pressure the stronger participate future, too early due and that the stocks will never be have not been able to
allowed to rebuild to a truly healthy state. This fear is all because communities in any public dialogue about the fishery of the there be one; as a result they see no reason other than past pressures will influence decision making.
should
changed
sufficiently
to
of the fisheries
The fear is that we will limp along indefinitely we did not formally pose this question in our more than a pale semblance intense bickering, desperate
with no in dealcom-
visits, we certainly heard strong views on the in DFO, and no reason to is likely to improve, is concerned, at
subject. Over and over again people made it clear that they had little confidence believe that fisheries management
making to carve up the meagre pie. For some, this scenario is the worst of all possible worlds, dividing munities collapse. The fear that government takes was not confined agement. has not learned from past misto concerns about fisheries manperception that the sectors, to high without common include: technology further and driving the fishery into permanent
12
people expressed
species are going the way of the cod. One parto it as a domino redfish, turbot, effect. Another crab, shrimp said to gone. and lob-
referred
in other resource
ster were all cited as cases in which the mistakes of the past are being repeated. In the case of shellfish, the allega-
both fisheries and forestry management able, increasing due consideration impacts, resource concerns, reliance on intensive of the environmental of a common primarily processing,
levels beyond what would appear to be sustainand social property and increased methods for large industrial
use of mechanized
and processing
that favour efficiency over employment. The fear that individuals CAPELIN tion. was made that in switching from fish to invertealtering our in a sustaincentred rather have not learned from past misWe were
told that, tragically, there are people today who would willingly go out and catch the last fish. We also heard concerns about the prevalence nities. Peoples tolerance gard for the conservation uted to the widespread ernment someone of poaching of poaching in some commuand cavalier disreit be their was attribis -
brates, weve simply changed victims without methods in any meaningful said that crab and lobster are being managed able fashion. for the most part on the unfairness than on sustainability considerations.)
own actions or those of their neighbours fish, and that conservation elses responsibility.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Other signals were more mixed. For instance, heard people express hopes for benefits underutilized emphasis, species, such as sea urchins was almost invariably
we often
to recognize
the importance
stay of an entire way of life. The tourism promote ignorance industry and attempts by communities to
however,
term gains to be realized; there was relatively little discussion of conservation have a long tradition perceived considerations for species that do not The conduspecies are
tourism
and incompetence.
Ramea provided
an example of government
get over the hump until the traditional reinstated, but it is not anticipated
and Culture was unaware that the Burgeo Road is now fully paved. As for incompetence, tourism brochures promoting we were told that the Bay de Verde Peninsula and
in a box, never having been seem to indimuch that tourism strategy is focussed priwithout potential
They apparently
have only a minor role to play in helping to sustain a traditional livelihood In the meetings and way of life.
that took place toward the end of our visof the dispute between Canada and approval of
syndrome:
Spain over turbot stocks, there was universal reason to think that Canada had turned respect to fisheries conservation. expressed the view that the measures
to and ignorance
the forceful action Canada had taken. For some, this was a corner with
of those unfortunate
souls who
to live in other regions of the province. such an attitude to the ignorance belief has
13
were too little, too late; and some went so far as to say that it was a meaningless gesture, one that is hypocritical support
of government
There is a widespread
ipant said, That wasnt the first liner to go in a net, and they werent Spanish nets either.
about the survival of their own communities, also very interested was a widespread throughout small rural Newfoundland communities
that small communities and Labrador face a major crifishing industry depend and ultimately the communities is evidence that for of a govfounda-
Newfoundland
The blame for this state of affairs was laid squarely on government-both what is perceived ignorance Newfoundland. federal and provincial as a systematic Government, undermining and on (either by
upon it. They fear that the lack of support across the province
by both the federal and provincial the social and economic What we are witnessing,
to undermine
Sustainable
Coastal
Communities
and
Marine
Ecosvstems
in
Newfoundland
and
Labrador
manifestation
of reset-
(i)
TAGS:
charity
vided by a person from Petty Harbour, that DFOs refusal to enforce amounted undermine systematic to a deliberate community dropping attempt solidarity.
Canada as a form of charity, a gesture of kindly benevolence for which Atlantic Canadians heard the widespread not fully understand mismanagement of level fear expressed
to foster disputes
and the attack on seasonal employees gram are seen as just a few examples to divide and destroy communities. responsibilities from the provincial was also frequently
of deliberate
primary liability for the massive expense rests with the managers. program TAGS, then, is and must be understood of restitution and compensation. as a
agenda to
shut down more remote communities. Much was said about the system. Some people expressed an industry the view that politicians representative are controlled by lobby (ii) TAGS complacency to displaced fisheries workers and their
The financial aid provided is a vital support families. Nevertheless, again that, whatever has the unfortunate
for thousands
of individuals
rations put forward the view that the fishery of the future should be concentrated ers, earning a minimum point was distinctly corporations out the small communities. on a small core of full time fishof $30,000 annually. This viewYet, because it was a large
we heard it said over and over the intentions of the program, complacency TAGS
effect of fostering
among many people. We often heard that many people are simply in denial; as long as they can cash their TAGS cheque, they do not fully acknowledge certainty that when TAGS compensation the magnitude of
vision of the future, many felt that the fix had been made and the fishery of the to meet industry expectations. For the of small communities view them-
14
the crisis facing them. Even more worrying will be some other program
is their alleged runs out there that there to tide them they see
selves as little people who dont have a say. On the other hand, there was also dissatisfaction lobbying clout of organizations representing representing appears that government organization with the
fishers. It
over until they can go back to fishing. Therefore little need to make any major commitments planning for their futures. form of complacency
prefers to deal with only one fishers. There is a widespread and others within commuas
towards
A slightly different
nities that fishers are excluded from decision-making, the union is seen as their only voice.
fied, which could be called TAGS and the sedative effect. The TAGS program diverting deterrent fishery has tended to pre-empt cussion about what caused the collapse in the first place,
the magnitude
of the catastrophe.
to public displays of outrage over the loss of the and to demands that those responsible must be a
the severe impact of the Atlantic fisheries collapse on them. It was no surprise, its support enormously program important for displaced
held to account.
It should be noted that we did not see a great deal of firsthand evidence their conviction of the TAGS complacency that this complacency syndrome. expressed Rather, the people who attended our meetings
runs rampant
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
through
their communities.
The point was strongly raised we visited, even to the point the major disincentive community to
individuals
willing to join
and take decisive action. The intent of the profishing-based communities, leaving
gram, we were told, is to whittle away by degrees the spirit of Newfoundlands the residents accepting remote more pliable and resigned fate is decided to placidly
whatever
on their behalf by
decision-makers.
(iii)
TAGS
causing
divisiveness
within
com-
munities We heard two ways in which TAGS is putting communities between by undermining their traditional a perceived a strain on co-operainequity and those from
4. CQMMUNlTY DEVELOPMENT
Our first community
ECQNOMlC
those who receive TAGS compensation for people: some were disqualified to be arbitrary
who do not. There were several ways in which injustices raised concern
Development.
happenstance;
some pointed
in the early summer upon the report for their comon the proposand especially
pool TAGS payments out of proportion community resentment tremendous any obligation munity
a family income that was in the fishery and to were afforded feeling to the com-
to their earnings
and were eager to discuss its implications was, of course, focussed zones in the province, funding al to form economic
norms; and some w,orking people expressed at the fact that TAGS recipients leisure and recreational to use that time to contribute time without
on the makeup of the zonal boards that will administer the economic-development found ourselves community the months place. The Task Force on Community was established local economic development Economic Development of Its mandate reaction for each zone. We of observing
15
or to their own futures. more insidious way that TAGS was divisiveness. amongst themWe
in the interesting
position
alleged to be contributing voice to their bitterness and find themselves still benefiting
to community or to organize
were told that people on TAGS are less likely to give full selves. This means that when people come off TAGS in desperate straits, they are less likely by people who are In communities where
in order to address the future directions in the province. regarding a more efficient
was to make recommendations and effective approach the provinces proposed Task Force recommended increased to 19) establish boards to co-ordinate
in each of
people had been involved in a variety of fishing activities, and where peoples TAGS eligibility periods by undermining the possibility covered a broad range, we heard that TAGS is dividing communities of people finding common by those cause in their plight. People whose TAGS eligibility is currently expiring will not be strongly supported still on TAGS, and when they come off TAGS in 1996 or 1997 they will in turn get little support are good until I998 or 1999. from those who
that the 18 zones (subsequently regional economic development development initiatives support in the zone,
business
agencies should work with the zonal boards to harmonize their support. People had a diversity of views about the changes taking
the view that TAGS is a that TAGS serves to activists, and that by is designed there will never be
several concerns
about the process, it must be emphasized were was one of interest and support
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
seriously indeed,
in the process.
plants will never reopen and which small communities will have the last door closed on their hopes of economic renewal. Wherever we went people acknowledged that
we spoke to them shortly after release of the report, later on, as community leaders started to get involved in the provisional zone boards, we
The bitter view of the Task Force on Community Economic Development, then, is that politicians and confrom
spired to use the zonal boards to distance themselves that are politically -volunteers all suicidal. The zonal board
the view that the federal and are not sincere in their efforts to for regional and local organizations role in the economic or regions. Although about community basically a paternalistic, economic developdevelopthe
goats to take a big fall. The result, some predicted, chaos: mass resignations and divisiveness the besmirching leaders. of boards, increasing
bitterness and
communities,
report uses all the right rhetoric involvement, top-down it is still promoting approach
to community
not a widely held viewpoint. we heard was that with so much it is the small communiby representa-
5. YOUTH:
THE I. ST GENERATION
and moving fears expressed had to do with their and young adults teenagers
on regional planning
Some of the most immediate by people who attended concerns about the children,
ties that will lose out in the process. A zonal board, it was will in most cases be dominated tives from the larger communities boards, it is feared, will become their decision struggling to maximize in the zone. These intensely politicized in board members benefits to their to reach decisions, at the
our meetings
16
we probed
a bit to find out what she meant we learned In the first case, numbers out searching
that the term had two distinct meanings. of young people leaving their communities, opportunities elsewhere. Although
own communities.
that the boards set in place. that painted a rather sinister our resources, that once proin the in the most governments the
communities
to take advantage
of employment
picture of the move to establish zonal boards. In a nutshell, the view is this: after mismanaging squandering province, the economic opportunities vided livelihoods
dire straits it has ever seen, the centralized are now off-loading resulting the responsibility mess to local volunteers!
it is felt, The other type of loss has to do with the teenagers young adults who do remain, This is the generation their own independence, and or who have not yet left. of
to make some of the brutally tough its responsito bear the layer of government
brunt of the abuse, scorn and outrage that is sure to come. that people in St. Johns and Ottawa are decisions such as which fish to make are those that will directly result in the
their own, who now find that they have few options choose from. Many older people were both outraged ashamed
deaths of communities
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
offer to their own children. Scie public meeting lot happier younger
It should be pointed
quite movingly
if I could do something
the older adults. The youths who came to our meetings may not have been broadly representative tion, but they manifested to the major questions of their generaan earnest desire to find answers facing them, as well as the intellito overcome despair and
away. Id
love to bring him home to work here. I want to see him make a man of himself. But Im so worried young people driven off the island. In the lost aimlessness of the young people in the school stores and at the inactive of our collective about all the
Particularly Harbour
impressive
wharves, people saw the grim reflection failure to keep future horizons concerned about increases
open. People were deeply problems explained that that at the by the
in order to be fully involved in the community that the moratoriums social and economic
in vandalism,
table effort. They drove home many valid points, notably blow to young out that in people has not been recognized. the past, even as pre-teens, pocket money cutting out cod tongues. They They pointed
would appear minor in central Canada. In fact, an RCMP officer who attended concern the Renews meeting
the main reason he had come was to talk about his grave since a recent act of property are learning destruction local school. Many in communities life lessons young children parents idle, receiving were troubled
a cheque every two weeks, with the uncertainty hanging over them. class other at the Bay de Verde meeting in her elementary She thought
have lost that economic opportunity and also the seasonal work that tilled their summer hours.
teachers were testing her naivete when they explained upon receiving TAGS cheques whole families headed for the shopping children mall in the nearest large centre, taking the out of school to do so. In fact, this was exactly and every
17
major concern,
was finding a seat On the other hand, we heard from many people that the only good thing about the moratorium ple were staying in school to graduate is that young peofrom high school. out of at university. Given the choice, all the young people we met said they would prefer to remain in their own communities. most thought Asked to guess if that would be possible, not.
We heard of the lure in earlier years of dropping fisheries where one could immediately ones high-school however, Although tutions, frequently complained
high school and landing a job in one of the more lucrative earn more than
teacher. Young people themselves, that people on TAGS and colleges. instiWe found many parallel situations a the various communities. and inadequate to call attention ed faced a wide range of common infrastructure, cerns about out-migration, in the challenges problems facing All of the communities volunteer burnout, we visitdecaying con-
by people in educational
many young people still believe that they are against TAGS recipients, who are guaranteed memspe-
competing
seat in courses. Given the scope of the crisis from a social, cultural and economic bers of our Partnership point of view, it surprised to realize that no counselling
to some particular
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
in coastal Labrador
no longer facing most Island communitransportation lifeThe overwhelming sentiment from communities was that
line in order to meet their basic needs these times of severe budget restraints for granted. seven months
a service that in
Ferry service itself serves the community of the year, leaving people dependent air transport
ing. Over and over we heard that future sustainability depended on greater empowerment of people at the comthat not all made a con-
munity level. It was generally acknowledged communities view that those communities scious decision more likely to survive. whose residents
planning
(Ramea and Fogo) have similar concerns, fair to say that the concerns
Nearly all of the views we heard fell within a general theme of belief in a sustainable personal and community control future based on greater coupled with and the decisions self-reliance
nities are more acute and receive less attention. Another type of special hardship was common to every
increased
community:
that affect their lives. Future sustainability maximize will also depend on approaches that
issues are not taken seriously the vast majority of processing. on the harvesting
This point was raised in concerns economic the value of the fishery.
firstly, by de-
about the false news spread through that had underestimated by moratorium
to be womens invisible.
5.5% of GDP (1984 figure) was mentioned inference from it was that Newfoundland
a number
very much on the fishery, and should just shake off the dust from a dead fishery and move on. What is not The discussions that took place tended to be concerned with some reflected in that statistic is that the fishery was extremely that 30,000 people were left unemployed with many times that impacts, that billions of dolfrom the federtheir caught up in economic labour-intensive, number suffering
notable exceptions
subjects. While people had a broad range of outlooks from anger and bitterness our conversations of the death of communities. ple we talked to acknowledged to enthusiasm around and optimism always hovered
were required
al purse, and that hundreds the fate of ocean life. Similarly, it was expressed the moratorium. Indeed,
of small communities
of-fact, and moved on from there. However, was raised that there is a danger of spiralling of negativity. challenges ties struggling facing Newfoundland to become
with disdain that some politifishery during the actual value of the fishery in value, but that is as a fluke in market
All of the doom and gloom around the and Labrador sustainable is dangerous,
cians were now talking about a successful I995 will exceed its pre-moratorium because of what is widely regarded conditions superior to pay premium
for one species. The Japanese are now willing prices for crab due to the collapse of in the quality Alaskan crab. The Alaskan crab is expectcrab fishery will likely be in jeopardy.
At the same time, it is not possible to simply tune out the bleak news. One person likened the communitys tion to that of someone storm: struggling situato survive in a snow-
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Further more, despite the high dollar value of the crab fishery, it has almost no impact on most local communities. It is an issue of real concern shipped source of bitterness that a handful that crab for Japan is It is also a of fishers and procesprofits out with virtually no local processing.
of those who first raised the They feel confident that But
an inquiry would at long last validate their concerns. and ignored in the wake of the disaster. People are frustrated
sors with crab licences are making astronomical while the majority of their neighbours made the same point about Hibernia, go to a few people but the benefits province as a whole. depends
with being told this is not the time demanding public accountability
for the collapse of the fishery were in bad taste. Deprived to discuss and debate the crisis, one likened the experience
Whats happening
to losing a
to the crab
at sea. In the
case of a death when the body is not found, the family cannot deal with the tragedy: When you dont find the
doesnt
make
any sense.
Theyre
Dealing
with
the
past
body, you always hope, you it became clear dont grieve. You always half expect him to open the door and walk back in, safe and sound.
putting
the crab
out in sections,
creating
less employment.
But
that the crisis created by the collapse of the fishery has not been dealt with either by communities, indeed, the nation. its aftermath, nounced the province or,
according
to politicians,
every-
formal public forum to deal with the fisheries collapse and but there appears to have been a proThree
things
great.
The
only
statistics
Planning future
THE FISHERY
for the
they Fisher
look
at are
signs. public
speaking
sulted as to why they think the fishery collapsed has government resource explained
meeting
under what criteria it should be allowed to reopen, was so mismanaged. There was discussion,
tainable in the past? and What made it unsustainable? were answered so too was the question What could make your comFish!,
a great deal of humour, ment has instituted. the task for a number range of stakeholders
They were viewed as inadequate of reasons. First, because a wide was not included.
Atlantic
will
register
positive
to
Second, having We
invited only fishers, they were then further segregated. heard of a recent meeting crews in another. on gear types where cod trap
munity
sustainable
future? answered
fishers met in one room, having no contact with dragger Not surprisingly, each group concluded that their own technology any consensus. was fine. There was no attempt
for the fishery. It was nearly universally out some level of restored nities will not have a future. But no one in our meetings returning to pre-moratorium
to bring these fishers into the same room or to achieve Nor were they allowed to discuss what had held the hope of the fishery levels of employment. Nor
caused the collapse of the fishery. Various theories bly never know. outs, or worse. happened are floated in the media within the gento blame and well probacopand what These are viewed as unacceptable In fact, many community residents
do people believe the fishery should be managed in the past. Echoing the conclusions eral themes that everyones
as it was
of the Honourable
John Frasers report on the status of the West Coast salmon, many in communities fishery had been managed warning expressed the view that the too close to the edge. The between sci-
fishers believe it is perfectly possible to determine and to use this information our mistakes.
to avoid repeating
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
en&s
and fishers. Over and over, we heard that for the managed there should be much including calls for actual succeed they
priority
involvement,
management
of their adjacent fishery. that if communities over resource and resources decisions. feel that no one speaks for To allow coastal decisions,
ancaclian overfishing
in gaming greater control will require the authority their local management
There is a need to address the issue of overfishing Canadians. Foreign overfishing attention has dominated
by
to implement
the discuson
sion, diverting
taking place
within Canadian
meaningful
diplomacy
round tables, etc.), more co-operation makers was recommended. identified The need to
break down the barriers that have existed in fisheries was frequently (for example, and their jurisdepartments
of marine resources.
Overfishing
of particular
species
the different
that deal with various aspects of the fishery and the comand within the community, the involvement of
As noted earlier, there was widespread species are being over-exploited. in planning
concern
that many
However,
three in partic-
all stakeholders). The call for involvement rounding responsible of fishers also extended to com-
ular were raised so often that they merit special attention the fishery of the future.
20
the fishery. It is felt that the same experts for the destruction of the resource are still
Capeiin
In every community
about the
making decisions
People believe that a process must be established vide all fishers the opportunity
the critical role played by capelin in the food chain. Second, that it is an unacceptably wasteful fishery because any dead. (A similar conroe.)
ning for the fishery of the future ment and management given an opportunity and traditional developed.
must be In
the major market is for capelin roe in Japan, requiring male capelin caught to be discarded,
involvement.
of scientific
cern was raised about the fishery for lumpfish be managed harvest. sustainably
a level of trust needs to be not only scientific ecological knowledge informaof fish-
Third, even those who believe that the capelin fishery can do not believe that the stock is the current approved level of strong enough to withstand
model that takes into account tion, but also the traditional ers; for stock assessment waters as well as offshore; technologies methods to determine for a sustainable
surveys conducted
be conducted
in consultation
of fishing gear and/or testing programs. There were many very specific suggestions fishery and future sustainability. had a high degree of community the basis of recommendations relating to the below
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Kewfoundland
and
Labrador
required
are
that every time a shrimp is sold in a of other fish have Even where
learned that the Co-op fish plant had decided in 1993 to remain closed for the year rather than accept capelin for processing. The following year, 1994, they were told that if
fish) is used, the rates of by-catch large. Many were particularly by-catch
they did not open to process capelin, they ran the risk of losing their processing opened. licence. Against their better judgethey
concerned
in baby cod, turbot and halibut. In fact, scientific in Newfoundland there of by-catch waters is lacking. Additionally, enforcement
data on the extent and type of by-catch and Labrador regulations. appears to be inconsistent
none of the capelin landed were large enough to be legally processed. In fact in that year, out of a total quota of waters due to the small size of the 47,000 M/T, only 1,700 M/T were legally landed throughout Newfoundlands fish caught. Many feel the resource shore behaviour is in trouble. Over the last few is later, offand, But still
With the cod showing limited signs of recovery, people in fishing communities want to know that everything possi-
ble is being done to give the cod a chance to recover. But between overfishing the cods major food sources and of other commercial species, by seals, they do not believe this years the capelin have been smaller, spawning in many areas, capelin are far fewer in number. allowing cod in the by-catch not to mention to be the case. predation
there is a capelin fishery in 1995. Capelin is a key component of the food chain for more than the cod. As an Inuit fisher pointed out to us in Makkovik, the capelin is the whales. number
Turbot
for turbot stocks is straightforward: As noted earlier, there was widespread for minister
most pride
people believe that it will soon be in a state of commercial and enthusiasm Estai. However, expressed expressed Tobins actions in seizing the
21
even in the same breath as people for the seizure, they also of Canadas newabout the strength
a major seabird colony at Witless Bay, for example, the black-legged year. Herring kittiwake population gulls are declining, plummeted by 90% last shearand ocean-going
found conservation
ethic. Juvenile turbot is caught by fleets. Most believe there quota with the Spanish.
waters appear to be absent in some areas. The vast majority of people attending our meetings felt
that the cod fishery will never recover without capelin stocks. The role of capelin in supporting ecosystem was mentioned less frequently cause for concern.
but is certainly a
waters
is just as important
a part of the food chain as shrimp fishery without TURBOT $300 million/year,
in Newfoundland.
ever taken place in the ocean. Recent worldwide confirm that dubious position.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
On the other hand, many fishers argued that gillnets, In discussing what would make their communities suswhen used properly, by-catch. are highly selective with very little of years, and
use of technoloagree-
as long as fishers are careful to ensure that none of their nets are left to become appropriate technology. ghost nets, they are a perfectly Suffice it to say that views on gillof community
ment about the two ends of the spectrum: one who spoke out in meetings tional hook-and-line producing the spectrum,
virtually everywhile
nets are a long way from the unanimity views on draggers. People also expressed concern
the highest quality catch. At the other end of nearly everyone believed that draggers role in the destruction of the fishery.
there were strong views about other technolothe same degree of unanimity.
draggers have achieved nearly mythological in the public psyche. Their sheer size (they are nets held open with ton and a half steel doors) and the ability to zero in on vast schools of fish with high-tech sonar and radar, scraping along the ocean floor, suggests that they have dwarfed the marine ecosystem resource northern technology and even a as seemingly as the cod. Many should be
metres deep, kept upright with floats and held down with weights set along the bottom. design. The Japanese variation in
dimensions
added a roof and a porch and was more complex catches of up to 10 M/T in one cod trap.
Foreign
overfishing
although
shelf and of foreign fishing that would impact on this area. Clearly, there was a great deal of concern Nose and Tail of the Grand Banks. A related concern was that combatting compromised foreign overfishing by Canadian civil seragendas. in stopabout the
inexhaustible
has been traditionally vants preoccupied ping overfishing concerns The view was expressed
people feel that dragger COD TRAP banned. Others feel that
it should at least be suspended until there is a proper environmental assessment and the
ticularly those made of non-biodegradable nets were introduced to the Newfoundland equipment,
view that if there is to be a fishery in the future, it must be conservation-based. agement described industry, override goal of resource of the resource. should be conservation
ments. In the late 1960s and early 197Os, 280,000 such to a 50% federal subsidy. Gillnets sit along the ocean floor like a fence. With mechanized
The interests
gillnets can be set from the same boat. They have the advantage of being able to conform to the contours of any that ocean floor and therefore enable fishing in areas inapproMany were worried
argued that there should be a change in the way the fishbeen pursued. on sheer quantity, as the Newfoundland
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
hope that the plant in their community will reopen, and they will not
explore other options. On the other hand, we heard from many, primarily that government owners of fish plants, should intervene as to and survives as
should be made by the marketplace. Many argued persuasively number that the
of fish plants did not play a on the ecosystem not processing. was Fish
should
license them in the future to process more than one species. They argued that if the community its resources through could manage rights of adja-
cency, then it only made sense that a local fish plant should be able to process a multiplicity species. TRAWL There was also a great deal of concern fishery had in the past, it should be more quality-conscious, implementing harvesting and processing practices about the fairness of the resources harvesters. This was particularly fisheries. distribution among acute as it related to the As noted above, the price of locally caught
23
the roof now, but only a very few can benefit crab fishery. In general, in all fish-
failure. They urged that fisheries management have some sense of the interactions tal conditions, of predator-prey management. essence ecosystem between relationships an ecosystem interventions -
More accurately,
Conservation
and
stewardship
education
believe that we cannot manage we can and should manage human ural systems to minimize
but, that We often heard that somehow human wondered obsession society has to recognize our fish inability to control greed. People in communities if we, as a society, are capable of controlling with short-term profits to stop hunting that allows us to catch the last fish. It the wild fishery Many more and practices or sea ranching.
Licensing Processing
beeisions
on
Harvesting
and
We frequently
heard that people would like government the fish plant in their community that unpopular decisions.
people believe that with good stewardship fishing with passive gear, a sustainable maintained. Many urged that to accomplish
will be allowed to reopen or not. They acknowledge these are difficult and politically But as long as there is no decision,
to active fishers.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Fishery
infrastructure
Not surprisingly,
seal popula-
for a small-scale
tion was raised nearly everywhere. issue wasbeing and politicians. used as a scapegoat
other elements
of the infrastructure
nities put forward the view that the seals had caused the collapse of the cod stocks. On the other hand, now that the cod is hanging on the brink of extinction, many be a cause of believe that factors that would not ordinarily concern, the edge. In the past, seals were seen as an abundant seal fishery was a significant contributing in communities public opinion received training processes. Montreal admired seal-fur clothing to the sustainability resource. The Many such as seal predation,
Moreover,
on
history,
At our community
believe it is time to take on international in order to create markets for seal prodin La Scie who had expense in tanning making high-quality show in at government a business
have to participate
and aggressive in enforcing Oceans Day session, there was representatives for the Fishers Co-op in the face of The inaction
At the wrap-up
from community
with high hopes. She related that other furriers her product that no one would public opinion. She had
DFO refusal to enforce their own regulations. nearly violent community on this particular symptomatic meeting.
evening before Oceans Day there had been a divisive and Government local issue appeared to many to be with eroding and law
24
tunity but they fear the negative image internationally never be overcome for seal products. provincial ment in this area. to allow the development However, efforts in research many were encouraged
governments
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
the fishery was never far from centre as previous sections suggest, the question us away from the fishery diversification, brought
able, and that there were more people interested advantage opportunity of the opportunity
of future sustainability
to issues of values and ethics, economic education, Regardless communities of programs. training and community
their educational
levels. We heard that there is currently educators with community and to attempt
input in order to make them acceptable remove any stigma. We heard repeatedly vocational training that should be
have
to
must be involved in the design and delivery We cannot overemphasize members the extent to
We used to
keep
a garden
and
is totally insensitive
their opinions
a few
goats.
We worked
and opportunities
employment.
harder,
but we
had
food
on our
MENT MUST LISTEN TO THE PEOPLE! There should be more input from the community type of training disturbed provided. Some communities to learn that decisions of such importance into the were
100 hairdressers
if there is no
backs...
market. We also heard from many people that TAGStrained workers were competing with others in overcrowded fields, such as nursing assistants, electricians. Many aspects of education carpenters and
were very
again being made outside the communities. nities opinions Further, delivered knowledge the training is being identified, involved. to highlight
The commuand
on ways to diversify are being ignored. designed from and with minimal
1 used
to milk
three
cows
in the
25
morning
before
going
to school.
If we are
going
to stay in
common
as they emerged
recommendations.
to get back
to work....
Have
determine
few
cows
and
a few
hens
and
capacity building In our meetings, training many different were raised. We heard recommendations needed to be educated
take
care
of ourselves...
wished to sup-
Views
from
the
Burnt
islands
pub-
and that TAGS reciptheir education about There was that has that the as an end in job.
lic
meeting
Conflict-resolution education The level of division withhas grown considerably Cod Adjustment since the Recovery in of Northern in the community introduction Program
training, cynicism
culture needed to change to value education itself, not merely as a ticket to a particular
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
LabradoI
training
is serious about diversification, money into R&D, marketing, expressed about government
making these courses available to the community in order to have a positive impact; Counselling Counselling should be provided
in areas
operating
where there is a need, i.e. family counselling, counselling, etc. Support counselling for youth, addictions,
marriage depression,
tion, with input from the community. were given of policies designed
Many examples
Integrating fishery awareness in education system The regular school system, primary, ondary and post-secondary, surrounding current vation crisis management, elementary, secshould integrate the issues and the conserYoung
Ottawa that did not make sense at the community when implemented. required
More input from the community policies are to work. visits we noted a tension on any
if government
the history of the fishing industry into their regular school curriculum.
fishing, processing,
those who could see a future based on dozens of and those who focussed it as inadequate to replace what ideas by
people need to know their history; Conservation education tainable development better utilization, keting, etc; More strategic use of TAGS funds We should look towards the of sus-
has been lost. Those who dismissed were most often those who appeared anything put forward
diversification
as an alternative
when it was agreed that no one new economic could replace the fishery was there consensus. Beyond new economic opportunities,
diversification practices
dis-
26
and that the quality of some of the courses offered leaves a lot to be desired; Identify the responsibility of the intellectual communities Memorial University of Newfoundland used to be much more involved in community development in the
essence, many felt they had to learn to make do with less. Many mentioned through returning the need to go back to the future to small-scale vegetable gardening and
livestock and milk production. We are living in a different we are more dependent logical innovations Certain economic
felt they could go all the way back to the way it used to be. environment on the cash economy
issues than it is now. It has shown little leadership present crisis. Education professionals talents, abilities and experience actual community to be more directly
than we were 20 or 30 years ago. diversification and common opportunities themes were as
emerged
on Newfoundlands
Tourism
ECONOMIC
All the communities
QIV~~SIFICAT~O
we visited felt there was the need to seals, aquaculture, underutilized agrisuch as
it was acknowledged
could never replace the fishery. Expectations tourism were quite realistic. It was recognized can rely on tourism. thwarted.
diversify in the areas of tourism, culture, secondary jams and preserves. processing, crafts, heritage carpentry
species, local
every community
Some communities,
and Forteau had gone through to identify their strengths many felt that government
near Port aux Basques believe there should driving off the ferry by Parks
and plan for the future. But was less than fully supportive.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Canada believe they should be able to attract visitors to the area to facilities beyond the park or historic such as local craft shops, restaurants are frustrated by the apparent Canada in the Lanse aux Meadows the community protected site -
people and their skills. It seemed that government more interested in attracting
was
intransigence
in their area from more ecological ecological sites were mentioned Baccalieu Island an ecological
areas. Proposed
to whale-watch
Comment meefing from Forteau public
specifically in Burnt Islands and in Bay de Verde, where people hope that declaring reserve will enhance ecotourism. transportation system was Certainly,
cruises were the difficulty in accessing capital and the extent of red tape and government regulation.
as a disincentive as a Partnership
to tourism.
travelling to beautiful
poor state of roads once you arrive, and the erratic ferry service to areas such as Fogo, Ramea and Labrador seen as obstacles to tourism development. hand, people complained were On the other
and keenly aware that budget constraints government ployment threaten schemes.
needs and few people want, such as the St. Johns Outer Ring Road, at the same time that roads to more remote areas are a sea of potholes.
of the fishery, there should be compensation of equity. In any event, as long as programs
27
such as the Atlantic Strategy (TAGS) are available, many in comcould be more sustainability. with
Aquaculture
Many people in communities three years into the moratorium, that government out meaningful also complained
culture is still such a matter of speculation. should take more initiative aquaculture
design of programs
is felt to interfere
real adjustment
and diversification.
paying people to stay home at levels exceeding ers in the community receive for working centive to change. At present,
that aquaculture
trolled by only a select few. Others wondered work in allowing people to maintain
the state of the crisis, there was not more experimental cod in homemade their
the fishery, they will not be entitled to return to the fishery should it recover. Government Government has continuously should provide assurances that trainees on TAGS will not be prejudiced. changed the rules and cricreating an aura of mistrust There needs to teria in the TAGS program,
ponds over winter, feeding them and enhancing doing this on her own.
Small
business
and uncertainty
was not one big thing that would save a community. Rather it would be many small efforts, largely individual entrepreneurs many barriers, establishing though, small businesses. There were all reflectin local
sider the impact on them. Many of the programs do not take this into consideration creates undue hardships
rent. For example, the living away from home allowance in family situations
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
for instance,
to
CONCLUSION
Despite the enormous coastal communities remains changes wrought in the lives of there nor
Some people expressed training who are TAGS-eligible TAGS recipients they successfully
the view that the only compulsory should be for those and under 25 years old. Many their training they would not
even in St. Johns but in the communities themselves, even though, ing.
were born, where they own homes and have a sense of their culture and values. Fundamentally, and Labrador by turns, they are disheartened ple in Newfoundland believe in the future, and despair-
be able to compete
with young people in the job market. who are just going to
would much rather have the educational their children. Many in communities als. This was a minority held view that community engendered
As noted, there are many aspects to what can be done to advance sustainability. also argued that TAGS funding not merely to individuwill be the founview, but it did reflect the widely co-operation As a Partnership, we have built this report on the views of communities, tions follow. whose recommenda-
solidaritv.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
of what we believe is there. This recommendation new of residents of small coastal communities. Prudence Conservation minister dictates that the lowest estimate advice. Council
the Harris review panel also urged in its report, of stock size to the
From these we distilled actions that we believe communities want to see undertaken government. by key stakeholders, including with partici-
be used to provide
of Fisheries and Oceans that fish stocks be manand cautious basis. be put into effect.
pants at the Oceans Day wrap-up and had some additional of those communities ing recommendations.
aged on a conservative
It is long since time that this principle THEREFORE, ary principle communities
PATHWAY
TO FUTURE
SUSTAINABILIN
FISHERY-RELATED
PROPOSALS
2. issues
of immediate principle
concern
where
the
Actions relating to the fishery are made with the aim of creating conditions quent sustainable to allow the restoration, harvest, of an ecosystem and subsewith an abun-
precautionary
is urgently
needed
Species chain a)
playing
a critical
role
in the
food
Cape/in
1. Application principle
of the
precautionary
People in communities
nearly unanimously
29
that there shall be no commercial principle, accepted at the Earth aboriginal Labrador, This community member
at Rio, is that the absence of absolute scientific observation from the cod 1990):
the capelin is the base of the food chain for cod (puffins and kittiwakes) and
proof should not be used as an excuse for inaction. closely parallels the following Independent
fins. Some argued that the ban on capelin should be put into effect on the basis of the many changes that have been observed indicators; in the stock and conflicting assessment there should others believe that it is doubtful
Stock, chaired by Dr. Leslie Harris and released more than two years before the Earth Summit
This is not to say that in the absence of comprehensive knowledge the world must stand still. It does meun that when our knowledge is deficient we should proceed with extreme caution, and if error is inevitable, we should at least attempt to ensure that our errors are on the right side of the ledger (p. 45). When applied to the fishery, then, the precautionary ciple would dictate that when estimates mass are based on limited, distorted and unproven anomalous models, evidence warnings ecosystem of spawning and/or and As prinbio-
capelin fishery because of by-catch in fmed gear, and waste due to dump-
ing by the mobile fleet. As members of the Partnership, we are persuaded on two ground: that the first,
that capelin is the base of the food chain and healthy prerequisite to a restored cod fishery; second, because average size has been small, offshore behaviour unusual worrisome abundance appears abnormal of younger and there is an All of these are spawners.
of significant
should be heeded,
action taken to ensure that the stocks are protected. was also found in the task force report headed by Ambassador
signs in a critical stock. we believe that DFO owes these fishing and, indeed, the people of Canada, a full
THEREFORE, communities,
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
explanation
for continuing
quotas for any commercial its data and rationale public forum. principle, on the capelin
approach
to an ecosystem
approach.
for any quotas for capelin to an appropriate based on the precautionary would want a moratorium
not with an eye to which trees should be harvested, rather to the state of the ecosystem Decisions after logging.
should, in other words, focus on what is needed Ability to manage limited. All approach ecosystem basis is presently
to sustain the health of the ecosystem. on a multispecies, Communities were also concerned about the shrimp close to rate is still waters. Despite fish-
the greater the need for using the precautionary and cautious management. THEREFORE, immediately ecosystem the communities
establish a clear plan to move toward an approach in science and management. Further,
high and there is serious conof regulations limiting it. of the extent of by-
DFO should reassess quotas for species where evidence of sustainability and lumpfish). and further, management restoring should have an emphasis ecosystem on nurturing, i.e., manage is lacking (for example, redfish, sea urchins
Shrimp, like capelin, are a critical part of the food chain, supporting communities THEREFORE, the cod in northern depend. communities would want the shrimp waters. They must be protected as part of the plan to rebuild fish stocks on which
and sustaining
health -
rather than what is taken. The goal and preserve a critical short-term
30
profit on a species-by-species
full
underutilized
turbot, northern
Turbot
a management throughout this document, there is a strong People are outeven commere) its Seals
As reported
belief that the turbot is badly depleted. though TACS and allocations further,
raged that the foreign catch of turbot continues argue that there should be no domestic
cial turbot harvest. THEREFORE, we believe that the DFO should provide for any quotas for turbot to an approbased on the precauwould want an end to the communities levels.
To the observant
eye it is obvious that the marine life and in our ecosystem is completely view in coastal inter-
ference through
for commercial
imbalance.
In many communities
that governments species by species. We believe that fishshould shift from a single-species responsible restoration
strategies
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
In recognizing
and accepting
cur-
of purposes. communities
rently exists, we must take a hard look at the consequences of allowing the population the decimation through commercial of prey species, such fisheries of a number
to effective planning
as harp seals, to increase while at the same time witnessing of critical species at the base of the food chain (capelin, shrimp, herring, etc.). governments in Partnership with industry, must on
fishery as well as in other parts of Canada and the world. THEREFORE, communities want a public inquiry, or the causes of the annito this
movement
to investigate
of the northern
must be given an opportunity process. Should the governments, undertake conclusions brought in this report
for a marketing,
not to accept
this action, we invite the government about through domestic overfishing, process,
3. Environmental
Assessment
Convention
technology
and a bias in decision making that favoured rations and the offshore and more traditional over the concerns gear types.
31
THEREFORE, conducted
an environmental
assessment
should be
and this evaluation The environThere is tremendous dependent anxiety in small communities are worried that by the federal we wont learn from the mistakes communities of the past. Fishingthat, just as the fish-
should be done before the fishery reopens. mental assessment government Environmental should be conducted
within the terms of the new Canadian Assessment Act, in order to ensure that are taken
social and cultural impacts of the technologies into account. Due to the overwhelming dragger technology, mental assessment, dragger technology. around concern
tion by foreign draggers in the late 1960s to 1970s politics and large corporations about the impacts of too quickly. THEREFORE, de-politicized clear minimum fashion. criteria for reopening in a public, transparent the and pending Moreover, completion of the environfishery should be established will dictate reopening the fishery
there should be a ban on the use of Canada should urge caurole in the current scene in the use of draggers
6. Community
involvement
development
that
should have greater access to and control over affecting their resources. should have a decisive say over their
The issue of the need to deal with the past before being able to plan for the future was raised universally meetings. in our We have come to agree that there must be for the state of the resource. Such an
small communities
Over and over again, we heard the same point communities. Moreover, a strong
accountability
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
community
the decisions
areas should be achieved by a number such as National National Marine Conservation Wildlife Areas (Canadian Oceans Act (DFO) or such as the
made about resources. THERFFORE, decisions local communities must be involved in all
Areas (Parks Canada), that affect them, especially in decisions management. related
legislative mechanisms
Wilderness
Areas and Ecological Reserves Act. the government of Canada and the governshould move forthrough Further, the Oceans they
involvement
THEREFORE,
ment of Newfoundland ward in the development for marine protected should honour Spaces program
should be subject to
considerations.
Act) and their timely implementation. their commitments in terms of establishing areas.
7. Rights
of adjacency
marine protected had certain rights based on The Harris review context it would seem for access contiguous dependent to on
9. Enforcement
Historically,
communities
to marine resources.
state of the fishery, we heard many of regulations. Enforcement Any serious is critical. fishery will flounder
should in all cases go to the communities the resource, it. THEREFORE, in fishery allocation should be honoured go to those communities whose survival is historically
of non-enforcement
to a conservation-based
and fail with poor enforcement. decisions, the princiTHEREFORE, and consistently porting, hibited species.
32
to avoid high-grading,
8. Marine
protected
areas
10.
Research
It was argued that, as a contribution based fishery, marine protected play. As a Partnership,
to the conservation-
as practised
in on
the past. There is a sense that it focussed too narrowly counting fish, as though they were inventory
on a shelf,
may be large areas with smaller no-harvest certain gear types or closed during spawning closed permanently, or managed ways. As part of Canadas Endangered these sites would conserve marine life. Marine protected side the protected restrictions representative
and too little on the myriad factors that make an ecosystem a vital, organic and changing of fishers information use this to supplement thing. There is a neglect and an absence of serious efforts to scientific research. Fishers and sci-
entists, and their respective THEREFORE, ecosystem Furthermore, ported between scientific the necessary
knowledge, scientific
applied to develop an understanding areas are not, then, simply exclusion for seeding of fish stocks outour meetings is an essential part of regimes area. People attending control Partnerships
and manage the fisheries from this perspective. should be established governments databases federal and provincial knowledge.
for integrating
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
11.
Licensing
14.
Encouraging
entrepreneurs
There is a great deal of concern, the alleged unfairness tions are necessary both in terms of harvesting tainable communities.
indeed bitterness,
over
13 communities
we
of allocations
met many people with energy, enthusiasm the obstacles to establishing often seemed insurmountable. a mechanism obstacles,
and processing.
to achieve conservation
THEREFORE,
more fair and equitable vesting and processing of the resource, licences.
new business
ventures.
including
as multispecies
15.
Resources
to community
development
Although
BEYOND THE FISHERY
communities
are clearly caught in the double base at the same time as govthere
resource
munities resources
in light of the crisis. We believe that these could be more effectively deployed with com-
As was noted in our community economic tainability province. THEREFORE, overarching communities: Sustainable development the following indicators,
meetings,
traditional
such as GDP, do not reflect the susor the health and vitality of a redirect TAGS funding, ing and implementing should be accepted as the ty involvement Department to assist communities sustainability. in develop-
of a community
With full communiwith the federal those within the comcompensated. There
principle
for development
of sustainable
33
munity with the drive and vision to work to develop susshould focus on approaches appropriate and that tainable options should be financially involvement
environmentally
13. Mechanisms
for
dealing
with
a crisis
16.
Planning
concern
consensus
that
the emotional
trauma
plans for its future is more likely to have one. Some comfrom the exercise of identifying new enterprises based on their strengths and planning
has not been dealt with. We were surprised Other than vocational
there has been little done to assist families in crisis, women or youth. counselling counselling should be provided in areas depression, Adequate in the
community
profiles should be developed, for the purpose of providing Members planning. on such of local
where there is a need, i.e. family counselling, for youth, addictions, groups should also be encouraged. about through
marriage
ferences aside and participate ipation of all stakeholders issues as economic resources,
should be put in place to facilitate the particin the community management development,
should be made available to address the social brought the upheavals of fishery-dependent communities.
lives of residents
Sustainable
Coastal
Communities
and
lMarine
Ecosystems
in
Newfoundland
and
Labrador
17.
Education
to areas managed
in particular
Based on extensive
historic
ings, it is clear that issues related to education ing are priorities recommend for small communities.
National
sites in
In general, we
and Labrador
the body of our report to government tion. A number ence here. THEREFORE: a) both levels of government ment a training awareness development program were raised repeatedly
20.
Forests
In communities expressed
was
and understanding
some of the
and environment-economy
integration; for
signs that were ignored in the fisheries cricentralization sufficient around large-scale maximum and safety margins, too close to (or beyond)
levels without
process of refining its revised, once every five years woodsupply analysis. There is public concern that the figures by political coming out of this analysis will be distorted pressure and industry lobbying. the harm that can be done by having developed in a closed process by establish(FRCC). pubthat to deal with this problem Conservation
Everywhere
their future. Less often, we heard from youth directly. Although we did make an effort to invite youth, clearly we that the needs have
could and should have done more to give youth a space in our process. In any event, we are persuaded DFO has recognized quota recommendations and has attempted of youth and the impact on youth of the moratorium been essentially THEREFORE, a) programs whether Programs should be developed and implemented, sustainability. ignored.
Council
We suggest that the same process be followed by the Forest Service, with an independent, body established analysis, review the assumptions lic, multistakeholder in order to assess the appropriof harvesting
as workshops
logue among youth about community should be designed tation with youth; b) youth should be involved multistakeholder c) counselling discussions
were used to generate the figures, determine ate Annual Allowable permits on unalienated tions with respect to the equitable allocation
Cut levels and make recommendaCrown land. that a multistakeholder to balance the different process group does (not at interests
in all
planning;
We did hear concerns not de-politicize always successfully) play. An alternative larly appropriate
should be available for youth, dealing not but with the psychological crisis.
organizations
The results of the review must, of course, be fully available to the public, the industry
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
zations at the same time as it is submitted with no agency having privileged THEREFORE, Newfoundland review process. the provincial access.
to government,
tainability.
The overriding
goal should be to develop a the values people were more selfin order
spirit, to recapture
recall from the time when communities government reliant, to overcome Forest Services forthcoming independent to work toward a common THEREFORE, goal -
analysis to a rigorous,
and public peerwe offer the following based on what many in communities expressed
21.
Transportation
infrastructure
1. Create
community
round
tables
Communities
them. Local efforts, even small and unfunded, much valuable work. Get together
roads and ferry access to much of the province urgent priority, especially if the government potential.
2. Foster
local
stewardship
Meanwhile,
Communities
responsibility
to
there are funds being spent on roads which we have heard are not wanted or needed. THEREFORE, decisions portation government should in its transportation on providing for remote an adequate transcommunities within
ensure that local stewardship They can work to encourage poaching Furthermore, munities restricting
practices
in some cases it may be possible for comconservation protected measures, quotas, areas. refusing to fish unsustainable
Newfoundland
as well as Labrador.
such as collectively
35
COMMUNITY
Although
ACTION
is critical if communities
3. Education
action by government
Communities
strategies
to
and Labrador,
erless. Nor should they feel that they have to sit back and see what government munities. does with these recommendations. they Of course, we hope that this report will be useful to comWe hope that it will validate the concerns policy as a result. can take sus-
tion (such as the use of community counselling and role models, etc).
4. Youth
and that they will press for One specific suggestion that should be implemented a dialogue between as tishknowlsoon as possible is to encourage
ers and youth, to educate youth about traditional edge, conservation ethics and community values.
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador
Closing
at synthesizing
hun-
Through
in giving
into specifics upon which key players want to see. Although of any particular they are group of and in
voice to their views. We urge both levels of government to seriously consider planning Ultimately, these proposals and to fully integrate and policy with people across the province. sustainability is about democracy. An aware both
in this crisis can take action. These specifics are what we believe the communities not the recommendations communities,
and alert citizenry engaged in the process of governance, coupled with a responsive and caring government, for elected and civil service, are the cornerstones Newfoundland and Labradors future.
their lives, people were extremely with us tl_____-__ their knowledge, concerns, -.~<., ; I _ _ _
generous
Sustainable
Coastal
Communities
and
Marine
Ecosystems
in
Newfoundland
and
Labrador