Fisheries and Oceans Canada failed to lead an integrated approach to sustaining marine resources
Report 3—Integrated Oceans Management
Report metadata
- Tabling date:
- Audited entities:
- Fisheries and Oceans Canada
- Topics:
- Environment
- Natural Resources
- Public Administration
- Report type
- Commissioner of the Environment and Sustainable Development reports
At a glance
The Pacific, Arctic, and Atlantic oceans support a diversity of aquatic habitats, plants, and animals. The oceans also contribute over $50 billion a year to Canada’s economy through industries like fisheries, shipping, and tourism. This creates a busy space where competing interests vie for access and resources. As mandated under the Oceans Act, which came into force in 1997, Fisheries and Oceans Canada is responsible for leading and facilitating the development of integrated plans to reconcile those competing interests and balance environmental conservation with the sustainable use of marine resources.
Nearly 3 decades later, Fisheries and Oceans Canada has made little progress in implementing its integrated oceans management plans. While the department worked with partners in 5 priority areas to develop integrated plans, these plans were broad and abstract and did not lead to concrete actions. This has left the country without the coordinated, pan-Canadian approach to ocean protection and management envisioned decades ago.
Between 2018 and 2024, Fisheries and Oceans Canada received $70 million to lead the development of marine spatial planning in 4 areas. This management approach is a relatively new collaborative process designed to coordinate when and where human activities should take place. Marine spatial plans build on existing integrated oceans management plans to achieve ecological, economic, cultural, and social objectives. However, the department has made little headway in developing marine spatial plans.
Given the current state of Canada’s integrated oceans management approach, it is highly unlikely that the government will achieve its recent commitment under the United Nations’ Kunming-Montreal Global Biodiversity Framework to ensure that all of the country’s marine areas are managed in an integrated and effective way by its target date of 2030.
Why we did this audit
- Integrated oceans management is needed to coordinate the activities of multiple partners to preserve the long-term health and resilience of marine ecosystems while supporting a sustainable ocean economy and managing human activities to minimize conflicts among users.
- The ultimate benefits of integrated management come when plans are put into action, and they cannot be achieved without effective implementation.
- Effective marine spatial plans are central to meeting marine habitat conservation objectives while supporting sustainable growth in our oceans.
Highlights of our recommendations
- To enhance the value of the plans developed to advance integrated oceans management and effectively carry out its responsibilities under the Oceans Act, Fisheries and Oceans Canada should
- establish priorities for concrete action, in collaboration with the partners involved
- establish clear accountabilities for results, including a description of what needs to be delivered, by whom, and by when
- make this information publicly available
- To demonstrate value for Canadians, Fisheries and Oceans Canada should monitor and report periodically on progress.
Key facts and findings
- In 2021, 15% of people in Canada lived within 10 kilometres of the coastline, the longest coastline of any country in the world.
- Fisheries and Oceans Canada does not have the authority to regulate all ocean uses. Plans must be developed collaboratively with federal, provincial, territorial, municipal, and Indigenous governments to coordinate efforts and manage marine activities within their respective jurisdictions to meet common goals.
- We found that 3 of the 4 first-generation marine spatial plans developed since 2018 had important gaps and did not meet the 36 minimum standards established by Fisheries and Oceans Canada for such plans.
Fisheries and Oceans Canada identified the development of these plans as a contribution toward the achievement of Goal 14 (Conserve and Protect Canada’s Oceans) of the 2022–2026 Federal Sustainable Development Strategy and toward Goal 14 (Life Below Water) of the United Nations’ Sustainable Development Goals. Marine spatial plans were also identified by the department as playing a central role in achieving Target 1 of the Kunming-Montreal Global Biodiversity Framework.
Exhibit highlights
Integrated oceans management involves balancing ocean uses while protecting marine ecosystems
Text version
This illustration shows that ocean spaces are busy. It shows how spaces are managed in the ocean for commercial, recreational, and environmental uses, and it gives statistics on commercial and environmental activities.
Following are the commercial activities shown:
Commercial fishing—This activity is shown as a boat with a net cast into the ocean.
Shipping channel—This activity is shown as a ship making its way through the dedicated channel.
Aquaculture—This activity is shown as a fish pond for raising fish.
Offshore energy—This activity is shown as windmills in the ocean and an oil platform supporting rigs and equipment.
Following are the environmental activities shown:
Shared use of ocean space—Shipping and fishing vessels share ocean space with marine life, people doing recreational activities like kayaking, aquaculture ponds, marine protected areas, and offshore energy exploration and production.
Sustainable use of marine resources—Commercial fishing and aquaculture ponds use marine resources in a sustainable way.
Conservation of ecosystems—Marine protected areas conserve ecosystems from commercial and recreational fishing and other activities.
Following are commercial and environmental statistics:
Commercial sea fisheries were worth $4.7 billion in Canada in 2022.
About 20% of internationally traded goods are moved on water.
In 2021, 15% of people in Canada lived within 10 kilometres of the coastline.
Canada aims to protect 25% of its oceans by 2025 and 30% by 2030.
Source: Based on information from Statistics Canada and Fisheries and Oceans Canada
Integrated oceans management plans were developed in 5 priority areas
Text version
This map of Canada highlights 5 marine areas in the northern, western, and eastern waters of Canada. It also shows the year that the latest integrated management plans were published.
The 5 marine areas and publication years of integrated management plans are as follows:
- the Beaufort Sea—the latest integrated management plan was published in 2009
- the Pacific North Coast—the latest integrated management plan was published in 2017
- Placentia Bay and the Grand Banks—the latest integrated management plan was published in 2012
- the Gulf of St. Lawrence—the latest integrated management plan was published in 2013
- the Scotian Shelf, Atlantic Coast, and Bay of Fundy—the latest integrated management plan was published in 2014
Source: Adapted from Fisheries and Oceans Canada
The first-generation marine spatial plans had gaps
Text version
This chart shows the 6 phases of Canada’s approach to marine spatial planning and our findings for each phase after having examined the first‑generation marine spatial plans. Overall, there were gaps in the first 3 phases, and the plans did not reach the last 3 phases of marine spatial planning.
The first 3 phases of Canada’s approach to marine spatial planning are as follows:
- Phase 1—Setting the stage: lessons learned and engagement strategy
- Phase 2—Establishing governance and partnerships
- Phase 3—Gathering and analyzing data
Our findings. First-generation marine spatial plans were meant to advance outcomes from these 3 phases, but we found gaps:
- The minimum standards established did not fully cover the expected results from these 3 phases
- The first-generation plans developed did not meet all minimum standards
Phases 4 and 5 of Canada’s approach to marine spatial planning are as follows:
- Phase 4—Developing marine spatial planning scenarios
- Phase 5—Finalizing the plan with priorities and accountabilities
Our findings. By design, the first-generation marine spatial plans developed did not reach phases 4 and 5 and missed important components, such as:
- scenarios with suitable areas for marine activities
- special measures for conservation areas
- priority setting for implementation
Phase 6 of Canada’s approach to marine spatial planning is as follows: Implementing the plan.
Our findings. Fisheries and Oceans Canada had not defined concrete steps for plan implementation. The plans by design are not legally binding and partners are expected to use existing authorities to implement them.
Source: Based on our analysis of information from Fisheries and Oceans Canada, including the Marine Spatial Planning Process Blueprint
Three out of the 4 first-generation marine spatial plans did not meet all 36 minimum standards
Text version
This map of Canada highlights 4 marine areas in the western and eastern waters of Canada. It also shows the results of our analysis of the 4 first‑generation marine spatial plans—that is, how many of the 36 minimum standards were met for each of the plans and examples of the unmet standards. Overall, the number of minimum standards that were met ranged from 30 out of 36 to 36 out of 36. Following are the details for each of the 4 plans:
Marine spatial plan for the Pacific North Coast—30 out of 36 minimum standards were met. Examples of unmet standards were as follows:
- No description of potential conflicts among ocean uses when they did not involve conservation
- No description of how the plan would support the coordination of multiple ocean uses that were less focused on conservation
- No identification of key federal legislation or authorities needed for broader collaborative ocean management
Marine spatial plan for the Southern British Columbia—30 out of 36 minimum standards were met. Examples of unmet standards were as follows:
- No spatial analysis of economic activities
- No description of conflicts or compatibilities among ocean uses
- No description of the approach to conservation planning in the area
Marine spatial plan for the Newfoundland and Labrador Shelves—34 out of 36 minimum standards were met. Examples of unmet standards were as follows:
- No spatial analysis of economic activities
- No description of conflicts or compatibilities among ocean uses
Marine spatial plan for the Scotian Shelf and Bay of Fundy—36 out of 36 minimum standards were met.
Source: Based on our analysis of information from Fisheries and Oceans Canada