Boelle-Lahey Panel

Inuepenuent Aquacultuie Regulatoiy Review foi Nova Scotia

Biaft veision foi Public Comment
}uly S, 2u14











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Table of Contents

Executive Summaiy ....................................... v

1 Intiouuctoiy Natteis ...................................... 1
1.1 The Bioauei Policy Context ............................... 1
1.2 What We Beaiu ................................... 4
1.S Enviionmental Impacts ............................... 4
1.S.1 Benthic Impacts of Fecal Nattei anu Waste Feeu ............ S
1.S.2 Watei Pollution .............................. S
1.S.S Impact on Wilu Salmon .......................... 7
1.4 The Request foi a Peimanent Noiatoiium ..................... 9
1.S Fin-fish veisus Shell-fish ............................... 11
1.6 Regulation anu Scale of 0peiations ......................... 12

2 Founuational Elements of the Regulatoiy Fiamewoik .................... 14
2.1 Attituues ....................................... 14
2.2 Social Licence .................................... 1S
2.S Biscietion ...................................... 16
2.4 Capacity ....................................... 17
2.S Emphasis on Compatibility with 0thei 0ses .................... 18
2.6 Piomoting, Enabling anu 0sing Reseaich ..................... 19
2.7 Regional Coopeiation ................................ 21
2.8 Commitment ..................................... 22

S Coastal Planning ........................................ 24

4 uoals .............................................. 26

S uuiuing Piinciples ....................................... 29

6 Role Anu Coopeiation with Feueial Regulatois ....................... SS
6.1 Backgiounu ..................................... SS
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6.2 The vital Impoitance of Inteigoveinmental Regulatoiy Collaboiation ...... SS

7 Bepaitmental Responsibilities foi Regulating Aquacultuie ................. 4u

8 Restiuctuiing the Auministiation of the Regulatoiy Fiamewoik .............. 4S

9 Enviionmental Nonitoiing Piocess ............................. 4S

1u Statutoiy Stanuaius ..................................... 47

11 Regulatoiy Tianspaiency ................................. Su

12 Piovisions on Aquatic Animal Bealth anu Wellbeing ................... SS
12.1 Fish Bealth ..................................... SS
12.2 Fish Welfaie .................................... S8

1S Bisease Contiol anu Nanagement Pioceuuies anu Capacity ............... 61

14 Site Selection anu 0tilization foi Fin-fish Aquacultuie ................... 64
14.1 Natuie anu Rationale foi a Classification System ................ 64
14.2 uieen Aieas .................................... 6S
14.S Yellow Aieas .................................... 66
14.4 Reu Aieas ...................................... 66
14.S Piocess foi Applying the Coastal Classification System foi Fin-fish Aquacultuie 67
14.6 Effect of Classification as uieen, Yellow oi Reu Aiea .............. 69
14.7 Relevance of Biffeiences Between Kinus of Fin-fish Aquacultuie ........ 7u

1S Stiategic Assessment of Coastal Aieas ........................... 71

16 Licensing (Site Appioval) Piocess .............................. 74
16.1 Intiouuction .................................... 74
16.2 Licensing anu Enviionmental Assessment .................... 74
16.S Statutoiy Licensing Piinciples ........................... 7S
16.4 0niveisal Elements of the Licensing (Assessment) Piocess ........... 77
16.S vaiiation in the Licensing Piocess ......................... 87
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16.S.1 Between Fin-fish anu Shell-fish Aquacultuie .............. 87
16.S.2 Between Fin-fish Applications in uieen, Yellow anu Reu Aieas.... 88

17 Changes in the Leasing of Aquacultuie Sites ........................ 91

18 Secuiity of Tenuie foi 0peiatois anu Sites In uoou Regulatoiy Stanuing ........ 94

19 Tiansfeis, Expansions, 0thei Changes ............................ 96

2u Piotection foi Wilu Salmon Populations .......................... 97

21 Nonitoiing Compliance anu Enfoicement Piovisions ................... 1u1

22 Emeiging Issues ........................................ 1uS

2S Site Closuie anu Clean-up .................................. 1u6

24 Relationship of the Regulatoiy Fiamewoik to Inuustiy Coues of Piactice ....... 1u8

2S Relationship of the Regulatoiy Fiamewoik to Thiiu Paity Ceitification ......... 11u

26 0ngoing Regulatoiy Auvisoiy Committee on Aquacultuie Regulation .......... 112

27 Science Auvisoiy FiamewoikNechanismPiocess .................... 114

28 Potential Role foi AANS in Suppoiting Compliance .................... 116

29 Woiking Capital (Aquacultuie Loans Boaiu) ........................ 117

Su Nanuatoiy Inuepenuent Five-yeai Review (with an auvisoiy committee) ........ 118

S1 Thoughts on Implementation anu Tiansition........................ 12u






v
Executive Summaiy

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The iegulatoiy fiamewoik pioposeu in this iepoit is the woik of the two Panel membeis. It coulu
not have been completeu howevei without the contiibutions of the Auvisoiy Committee, the
Rounutable, the Knowleuge Rostei, the Panel's Secietaiiat, anu countless paiticipants in the Panel's
18 month piocess. As Panel membeis, we came into this piocess with expeitise in iegulatoiy
piocesses in the natuial iesouice sectoi anu some othei sectois, but with no paiticulai knowleuge
of the aquacultuie inuustiy oi its state in Nova Scotia. We have benefitteu gieatly fiom the
geneious suppoit we have ieceiveu fiom the many paiticipants in oui piocess, fiom acauemics,
goveinment officials, community gioups, enviionmental gioups, anu membeis of the public to
those involveu in the inuustiy, with many contiibuting theii time, knowleuge anu peispectives on a
volunteei basis without compensation.
We weie, of couise, guiueu in oui woik by oui manuate, which is available on oui website at
www.aquacultuieieview.ca. 0f paiticulai note is that oui manuate makes specific iefeience to the
!"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67), anu its goal of integiating enviionmental
piotection with economic anu social piospeiity. 0ui woik was also significantly influenceu by the
woik of the 0ne Nova Scotia Commission, which ieleaseu its iepoit paitway thiough oui piocess.
We weie conscious of the impoitance of iuial uevelopment to the piospeiity of the piovince.
Buiing the summei of 2u1S, we helu meetings in 21 coastal communities thioughout Nova Scotia to
leain about the issues people in coastal communities felt we shoulu consiuei in oui woik. A
summaiy of what we heaiu is available on oui website at www.aquacultuieieview.ca along with
meeting summaiies, submissions anu othei infoimation ielevant to oui piocess. In veiy bioau
teims, we heaiu a iange of conceins about the impact of maiine baseu salmon aquacultuie on the
maiine enviionment, on wilu salmon populations anu on lobsteis, lobstei fisheis anu the lobstei
inuustiy. About fin-fish anu shell-fish aquacultuie, we heaiu conceins about how they inteifeie
with oi uisiupt the activities of othei useis of coastal wateis anu the chaiactei anu quality of
coastal communities. We heaiu uistiust of anu lack of confiuence in the inuustiy, the Bepaitment
of Fisheiies anu Aquacultuie (as well as othei iegulatois) anu the cuiient iegulatoiy fiamewoik.
We have concluueu that a funuamental oveihaul of the iegulation of aquacultuie is calleu foi. We
have concluueu that this oveihaul shoulu be guiueu by the iuea that aquacultuie that integiates
economic piospeiity, social well-being anu enviionmental sustainability is one that is low impact
*"/ high value. By this we mean aquacultuie that combines two funuamental attiibutes: it has a
low level of auveise enviionmental anu social impact which uecieases ovei time anu it piouuces a
positive economic anu social value fiom the use of coastal iesouices which is high anu incieases
ovei time.
A numbei of paiticipants in oui piocess uigeu us to concluue that maiine baseu fin-fish facilities -
anu moie paiticulaily, salmon faims - cannot be sustainably opeiateu, anu to iecommenu that a
peimanent moiatoiium be imposeu on this kinu of aquacultuie. 0ui conclusion, aftei caieful
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consiueiation of the state of the science anu oppoitunities to ieuuce impacts thiough effective
iegulations, is that the iegulatoiy fiamewoik shoulu not be piohibitoiy at a piovincial scale.
Insteau, we iecommenu funuamental changes to the iegulation of aquacultuie, which we concluue
can auuiess the seiious anu legitimate conceins iaiseu without foieclosing the oppoitunity
associateu with this sectoi of the inuustiy. 0ui ieasons incluue the following:
a. The iisks anu impacts can be significantly ieuuceu thiough effective iegulations;
b. Thiough inciemental uevelopment anu continuous impiovement to minimize
negative impacts anu iisks while maximizing benefits, maiine-baseu fin-fish
aquacultuie has the potential to make an impoitant contiibution to sustainable
piospeiity in Nova Scotia;
c. A uiveise inuustiy that incluues maiine-baseu opeiations anu lanu-baseu facilities
is moie likely to be iesilient to futuie changes, incluuing changes in maiket
conuitions anu climate change; anu
u. In the context of oui manuate to uevelop a iegulatoiy fiamewoik that integiates
enviionmental, social anu economic objectives anu the conclusions of the 0ne Nova
Scotia Commission on the state of Nova Scotia's economy, the potential contiibution
of maiine-baseu fin-fish aquacultuie to Nova Scotia's economy calls foi a policy
appioach that auuiesses the iisks thiough iesponsible uevelopment anu iobust
iegulation iathei than piohibition.
We iecognize that fin-fish opeiations, even if well iegulateu anu opeiateu, aie not appiopiiate in all
coastal wateis aiounu Nova Scotia. We concluue that a new iegulatoiy fiamewoik must ensuie
that maiine-baseu fin-fish faiming only occuis in coastal wateis that aie suitable foi that kinu of
aquacultuie anu wheie it is compatible with othei impoitant uses of those wateis. Foi that ieason,
one of oui coie iecommenuations is the cieation of a classification system unuei which coastal
aieas woulu be iateu as gieen, yellow oi ieu baseu on theii ielative suitability foi fin-fish
aquacultuie. 0nuei this system, the classification of a coastal aiea woulu ueteimine how
applications foi a fin-fish licence woulu be evaluateu anu the likelihoou of an application foi such a
licence being appioveu. It woulu also play a cential iole in ueteimining the teims anu conuitions
unuei which licences woulu be issueu.
The iegulatoiy fiamewoik we piopose woulu also allow applications to the Ninistei to have a lease
ievokeu if it has become cleai thiough expeiience that the site is not suitable foi a paiticulai type of
opeiation. The licensing piocess we have pioposeu also iuentifies the neeu to consiuei at the
ienewal stage, whethei a site is being iesponsibly opeiateu anu whethei the site is suitable foi
continuing opeiation of the type anu scale pieviously peimitteu on the site. Finally, we make cleai
that existing opeiations will have to be biought unuei the new iegulatoiy system as soon as
piactical, anu that any new facilities shoulu be piocesseu unuei the new iegulatoiy system we have
iecommenueu. In othei woius, the piovince shoulu continue its commitment not to piocess new
applications until the new iegulatoiy system is in place.
Foi fin-fish anu othei kinus of aquacultuie, the iegulation of aquacultuie will change in
funuamental ways unuei the pioposeu fiamewoik. Foi example:
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a. The iegulation of aquacultuie will be functionally sepaiateu fiom the piomotion of
the aquacultuie inuustiy;
b. Enviionmental monitoiing will be moveu to the Bepaitment of the Enviionment
fiom the Bepaitment of Fisheiies anu Aquacultuie;
c. Impoitant iegulatoiy stanuaius that aie cuiiently only auuiesseu in the teims anu
conuitions of inuiviuual licences wiitten unuei statutoiy uiscietion will be
auuiesseu in legislation;
u. Noie geneially, the iegulatoiy piocess will be much less uiscietionaiy than it
cuiiently is unuei the 8$.9(%$(. *"/ :&*.)*+ ;(.&1%7(. 67);
e. Theie will be a peivasive emphasis on openness anu tianspaiency, both in the
licensing anu leasing piocess anu in the monitoiing of compliance by licenseu anu
the enfoicement of iegulations;
f. The health anu well-being of faimeu fish will become a cential concein of the
iegulatoiy piocess anu a coie mechanism foi ensuiing the compatibility of
aquacultuie with its coastal enviionment;
g. The public will have multiple oppoitunities, incluuing a manuatoiy heaiing on eveiy
application foi a licence, to contiibute to uecision-making in the licensing piocess;
h. The licensing anu leasing piocess will be conuucteu as a kinu of specializeu
enviionmental assessment that incoipoiates an integiateu unueistanuing of
enviionmental, social anu economic issues into licensing anu leasing uecisions;
i. Licensing will be guiueu by statutoiy licensing piinciple anu subject to a
iequiiement foi wiitten ieasons that togethei will iequiie licensing uecisions to be
justifieu in teims of iegulatoiy objectives anu the compatibility of aquacultuie with
public iights of navigation, fishing; local biophysical conuitions, othei uses of the
wateis pioposeu foi aquacultuie, the cumulative effect of aquacultuie in the aiea
anu the contiibution of the pioposeu opeiation to net community socio-economic
benefit;
j. Subject to stanuaiuizeu safeguaius to ensuie openness, tianspaiency anu
paiticipatoiy faiiness in uecision-making, the licensing piocess will vaiy to ieflect
the uiffeiences between shell-fish anu fin-fish aquacultuie as well as the uiffeiences
between fin-fish aquacultuie in gieen, yellow anu ieu aieas;
k. Salmon faims will be iequiieu to institute a compiehensive containment system to
pievent escapes such as is iequiieu in the State of Naine;
l. Compliance monitoiing anu enfoicement will be stiengtheneu by:

Incieasing the monitoiing anu enfoicement staff anu othei iesouices;
0nscheuuleu inspections;
Taigeting oveisight to highei iisk opeiations;
Penalizing violations with piosecutions anu licence anu lease ievocation
wheie waiianteu; anu

m. Cieation of a stanuing Regulatoiy Auvisoiy Committee that incluues Fiist Nations
anu stakeholueis such as coastal communities, municipalities, the aquacultuie
vlll
inuustiy anu enviionmental oiganizations to pioviue ongoing auvice on the
implementation of the iegulatoiy fiamewoik anu the continuing impiovement of
iegulation in the face of new anu changing conuitions, challenges, oppoitunities anu
leaining.
In ueveloping oui iecommenuations, we have been minuful that a iegulatoiy system foi Nova
Scotia's uiveise aquacultuie inuustiy must ieflect the uiffeiences between fin-fish anu shell-fish
aquacultuie anu between laige anu small business while stiengthening the iegulation of the
inuustiy in a compiehensive way. We note thiee options foi auuiessing this concein in the uesign
anu implementation of the new iegulatoiy system.
0ne is to ensuie that the iequiiements imposeu by the iegulatoiy fiamewoik on laige anu small
opeiatois aie piopoitionate to the iisks that the fiamewoik is intenueu to contiol in an effoit to
minimize the auuitional buiuen the fiamewoik places on small opeiatois. A seconu option is to
ensuie the fiamewoik leaves iegulateu oiganizations with ieasonable levels of flexibility as to how
they implement oi meet the iegulatoiy iequiiements. The thiiu option is foi the iegulatoiy agency,
often in paitneiship with inuustiy associations, to invest in piogiams that assist small anu meuium
size enteipiises (SNEs) in meeting theii iegulatoiy obligations. We have caiefully consiueieu these
options in oui woik, anu uige the piovince to give uue consiueiation to these issues in the uesign
anu implementation of the iegulatoiy system, as we see gieat value in a uiveisity of opeiatois, anu
in the size anu type of opeiations.

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The success of the iegulatoiy fiamewoik we have pioposeu will uepenu on the cieation of a
numbei of funuamental enabling conuitions.
a. The attituue which infoims iegulation must take the conceins of those who live in
coastal communities seiiously anu at face value;
b. The ciitical iole that effective iegulation plays in constituting social licence anu in
builuing upon social licence once it is establisheu must be embiaceu by goveinment
anu the inuustiy;
c. The peivasive uiscietion built into the cuiient iegulatoiy fiamewoik must be
limiteu in a new iegulatoiy fiamewoik if the new fiamewoik is to enjoy the tiust
anu confiuence it neeus to be successful;
u. The capacity of the Bepaitment of Fisheiies anu Aquacultuie to caiiy out its
iegulatoiy manuate must be significantly enhanceu;
e. Theie must be a funuamental emphasis in iegulation of the inuustiy on the
compatibility of licenseu aquacultuie with othei uses of coastal wateis;
f. The Bepaitment of Fisheiies anu Aquacultuie must become moie pioactive in
piomoting, enabling anu using the iesults of ieseaich in its iegulatoiy activities anu
in paiticulai, in suppoiting the ieseaich that will impiove collective knowleuge of
the inteiaction of aquacultuie anu the specific biophysical anu socio-economic
conuitions of coastal Nova Scotia;
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g. Nova Scotia must woik to ensuie that iegional coopeiation in the iegulation of
aquacultuie aie consistent Nova Scotia's policy anu iegulatoiy objectives anu
incluue coopeiation on matteis, such as the capacity to auuiess anu mange uisease
outbieaks, that iequiie iegional coopeiation because of the limiteu scale of the
inuustiy in each piovince; anu
h. The commitment to impiovement in the iegulation of aquacultuie must be
sustaineu foi the long-teim.
This iepoit lays paiticulai stiess on the neeu foi ieseaich anu on the iole that the BFA shoulu play
in taking auvantage of anu contiibuting to giowth in Nova Scotia's anu Atlantic Canaua's ieseaich
capacity in aquacultuie. 0n some matteis, such as the possible impact of fin-fish aquacultuie on
lobsteis, theie is concein in Nova Scotia about questions that have ieceiveu veiy little ieseaich
attention in oi beyonu Nova Scotia. 0n othei issues, theie has been limiteu ieseaich to evaluate the
applicability of finuings ieacheu elsewheie to the Nova Scotia context. The ultimate effectiveness of
the iegulation of aquacultuie in Nova Scotia will uepenu on ieseaich being uone to auuiess such
gaps.
0f couise, any iegulatoiy system has to function in the face of unceitainty while ieseaich to ieuuce
the unceitainty is unueiway. In the case of the potential impact of aquacultuie on lobstei anu in
similai cases of unceitainty, oui iecommenueu appioach is that the BFA shoulu:
a. Iuentify oppoitunities to ieuuce oi eliminate the souice of the iisk, wheie this can
be ieasonably be uone thiough changes in the opeiation of fin-fish aquacultuie (foi
example, as set out elsewheie in the iepoit, by eliminating the use of chemical anti-
fouling agents);
b. Wheie iisks cannot be ieauily eliminateu, pioceeu with a cleai unueistanuing that
theie is an unknown iisk associateu with the opeiation, anu make the quantification
of the iisk a piioiity thiough specific monitoiing anu ieseaich effoits.; anu
)9 Ensuie that the scale of uevelopment is in line with the iisk involveu, by ensuiing
inciemental uevelopment anu by ietaining the ability to aujust to new infoimation
expecteu fiom the auuitional monitoiing anu ieseaich.

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We heaiu a bioau iange of views on coastal planning. 0ui conclusion is that an integiateu coastal
plan foi Nova Scotia woulu be a veiy useful tool that coulu uo much to impiove the efficiency,
effectiveness anu faiiness of the iegulatoiy piocess. At the same time, we aie not in a position to
ueteimine what time anu iesouices woulu be neeueu to complete such a piocess successfully,
paiticulaily given that it woulu likely have to have the suppoit of all levels of goveinment. While a
coastal planning piocess woulu be veiy helpful to the iegulatoiy piocess, we cannot pieuict
whethei oi when such a piocess woulu yielu iesults, oi what the content of such a planning piocess
woulu be. We have theiefoie ueciueu to uesign the iegulatoiy fiamewoik foi aquacultuie in the
absence of a coastal plan. If such a plan is uevelopeu in the futuie, ceitain aspects of the iegulatoiy
piocess coulu be significantly stieamlineu.
x
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We stiess the impoitance of the aiticulation of iegulatoiy goals anu piinciples both to guiue
iegulation anu stiengthen the accountability of iegulatois. We concluue that the iegulatoiy
fiamewoik foi aquacultuie shoulu have the following goals:

a. Enviionmental piotection anu sustainable use of enviionmental seivices;
b. Faiiness in allocation of public iesouices, i.e. coastal wateis;
c. Piouuctive use of coastal iesouices in the uiiection of low impact foi high value;
u. Compatibility with othei sectois of the economy;
e. Ensuiing social anu economic benefits piopoitionate to the value of the iesouices
useu;
f. Piotection of wilu salmon populations;
g. Neaningful public paiticipation in uecision-making;
h. Attentiveness to plans, objectives, neeus anu piioiities of local communities;
i. Suppoiting the effoits of the inuustiy to giow by combining business success with
highei enviionmental peifoimance; anu
j. Regulation that is achievable, enfoiceable, incoipoiates incentives to comply, is
efficient, timely, pieuictable, anu affoiuable foi taxpayeis anu foi inuustiy.

We similaily concluue that 7 guiuing piinciples shoulu guiue the uesign anu implementation of the
iegulatoiy system:

1. Effectiveness
2. 0penness
S. Tianspaiency
4. Accountability
S. Piopoitionality
6. Integiation
7. Piecaution


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Feueial iegulatois play a ciitical iole in iegulating aspects of the inuustiy. In paiticulai, Fisheiies
anu 0ceans (BF0), Bealth Canaua, the Canauian Foou Inspection Agency (CFIA), anu Tianspoit
Canaua each contiibute in impoitant ways to the iegulation of the inuustiy. It will continue to be
impoitant foi the piovince to woik closely with feueial iegulatois to ensuie effective cooiuination.
Theiefoie, we concluue that Nova Scotia shoulu continue to woik with the BF0 anu othei feueial
iegulatois thiough the mechanism of an N00 to ensuie the entiie iegulatoiy fiamewoik foi
aquacultuie in Nova Scotia is as effective, cohesive, cooiuinateu anu stieamlineu as it can be uespite
the uivision of iegulatoiy authoiity between the two levels of goveinment. A stiong anu cleai
xl
uelineation of ioles built on a cleai aiticulation of shaieu iegulatoiy objectives woulu help to
achieve uesiieu levels of cohesion. The piovince shoulu not, howevei, tieat feueial uecisions on
issues subject to feueial iegulation as piecluuing auuitional piovincial action to ensuie the
compiehensive effectiveness of the iegulation of aquacultuie in Nova Scotia.


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The uual iole of the Bepaitment of Fisheiies anu Aquacultuie (BFA) as piomotei anu iegulatoi of
the inuustiy was a mattei of concein to many paiticipants. We weie uigeu to iecommenu a
iegulatoiy fiamewoik unuei which iesponsibility foi iegulating aquacultuie woulu be moveu to
the Ninistei of Enviionment. The issue goes to the heait of the lack of tiust that is at the centie of
much of the uissatisfaction with the cuiient iegulatoiy fiamewoik. In the enu howevei, subject to
what we say below on the issues of enviionmental monitoiing, we have concluueu that
iesponsibility foi iegulation of aquacultuie shoulu iemain with the BFA. Theie is howevei, an
impoitant pioviso to this conclusion: it uepenus on acceptance anu implementation of the othei
elements of oui pioposeu iegulatoiy fiamewoik, many aspects of which aie uesigneu to auuiess by
othei means the palpable uistiust anu potential foi conflict which exists with the cuiient iegulatoiy
fiamewoik. We have ieacheu this conclusion foi the following ieasons:
a. Although the iegulation of aquacultuie is laigely conceineu with enviionmental
piotection, it also conceins the use of a public iesouice - coastal wateis - anu the
place of aquacultuie in the uevelopment, use anu piotection of coastal iesouices;
b. The iesult of ieallocating the enviionmental aspects of piovincial iegulation of
aquacultuie to the Bepaitment of Enviionment woulu auu to the alieauy complex
iegulatoiy lanuscape that exists within the sectoi;
c. Piovincial iegulation of aquacultuie alieauy suffeis fiom a lack of iegulatoiy
capacity. We think that the capacity gap is moie likely to be auuiesseu cost-
effectively if the incieaseu capacity is concentiateu as much as possible in one
uepaitment iathei than uiviueu between uepaitments;
u. Biviuing iegulatoiy functions between uepaitments might complicate Nova Scotia's
collaboiation on aquacultuie with othei goveinments in Atlantic Canaua, all of
which combine inuustiy piomotion anu suppoit with iegulation in one goveinment
uepaitment that is also iesponsible foi the fisheiy manuate;
e. While sepaiating the iegulatoiy iole fiom the inuustiy uevelopment iole might
impiove confiuence in the inuepenuence anu tiustwoithiness of the iegulatoiy
piocess, it may not iesult in impioveu iegulatoiy effectiveness; anu
f. Even if we weie otheiwise inclineu to assign the iegulatoiy iesponsibility to the
Bepaitment of Enviionment, the appioval piocess anu the enviionmental
assessment piocess in Paits Iv anu v of the NS !"#$%&"'(") 67) woulu iequiie
significant enhancement to seive as useful iegulatoiy tools foi aquacultuie.


xll
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0ne of the ciitical piovisos to oui conclusion that the iegulation of aquacultuie shoulu stay in the
BFA is that it shoulu be moie stiongly sepaiateu fiom the uepaitments' iole in inuustiy piomotion.
To facilitate this, iesponsibility foi the auministiation of legislation shoulu be assigneu to a
statutoiy official insteau of to the Ninistei. This change will have othei benefits, incluuing gieatei
inuepenuence foi those who have iegulatoiy functions anu iesponsibilities anu a less political anu a
moie piofessionalizeu iegulatoiy piocess.


!"#$%&"'(")*+ B&"$)&%$"> 3%&7(..

An effective enviionmental monitoiing piocess (ENP) is ciitical foi effective iegulatoiy oveisight of
iegulateu facilities. We iecommenu the following:

a. The piocess shoulu be establisheu in legislation;
b. The paiameteis of the piocess shoulu be piesciibeu in iegulations iathei than in
uepaitmental policy;
c. The legislation shoulu make compliance with the piocess a teim anu conuition of all
licences. The manuatoiy natuie of the piocess shoulu not uepenu on whethei oi not
it is wiitten into the teims anu conuitions of specific licenses;
u. The iesponsibility foi monitoiing compliance with the enviionmental monitoiing
piocess shoulu be tiansfeiieu to the Bepaitment of Enviionment to impiove public
confiuence in the inuepenuence anu objectivity of the oveisight that goveinment
biings to beai on inuustiy's compliance with the ENP;
e. The iegulatoiy monitoiing of compliance of opeiatois with the ENP has to be
stiengtheneu. Theie neeus to be moie auuiting of compliance. The auuiting piocess
neeus to incluue ianuom unannounceu auuits. Biiectly oi thiough contiacteu thiiu
paities who aie inuepenuent of inuustiy, iegulatois neeu to moie fiequently collect
theii own samples foi analysis anu again, this neeus to be peiiouically uone on an
unannounceu ianuom basis subject only to the auvance notice that is iequiieu to
auuiess biosecuiity conceins; anu
f. The iesults fiom the ENP foi each site neeu to be available to the public in a timely
mannei.

0)*)1)&%5 0)*"/*%/.

In an effoit to ieplace uiscietion with cleai iules wheie appiopiiate, we concluue that ceitain
matteis now auuiesseu in the teims anu conuitions to specific licenses shoulu be auuiesseu in
legislation. The legislation shoulu in auuition specify iegulatoiy stanuaius in ceitain key aieas of
opeiation that aie cuiiently not auuiesseu in the iegulatoiy fiamewoik. The following
iequiiements shoulu be set out in legislation:

xlll
a. The conuitionality on each licence on compliance with the Act anu iegulations anu
the teims anu conuitions of lease anu licence;
b. Compliance with the enviionmental monitoiing piocess (ENP);
c. 0bligation to maintain oxic conuitions;
u. Anti-fouling technology (no chemical anti-fouling agents);
e. Stanuaiu iequiiements iegaiuing fallowing, age class, anu sepaiation between
facilities;
f. Stanuaiu iepoiting obligations foi each type of aquacultuie; anu
g. Stanuaiu iequiiements iegaiuing accommouation of navigation.

;(>1+*)&%5 C%*".4*%("75

Lack of tianspaiency about the iegulatoiy piocess anu its opeiation in geneial anu in ielation to
specific sites was a fiequently voiceu concein in oui piocess.
Regulatoiy tianspaiency will be ciitical to the effectiveness of the pioposeu iegulatoiy system. In
paiticulai, it is a ciucial enabling conuition foi oui conclusion that iesponsibility foi iegulation
shoulu laigely stay with the Bepaitment of Fisheiies anu Aquacultuie.
As a staiting point, compiehensive anu easy-to-unueistanu infoimation on the iegulatoiy
fiamewoik shoulu be ieauily accessible to anyone inteiesteu. This will auuiess the ieal fiustiation
anu iiiitation we heaiu fiom many, incluuing some in the inuustiy, about the uifficulty they have
expeiienceu in obtaining cleai infoimation about matteis such as the steps in the iegulatoiy
piocess, the obligations of applicants foi leases anu licences anu of opeiatois once licenseu, theii
oppoitunities to paiticipate in the iegulatoiy piocess anu the actions the BFA can oi will take to
ensuie compliance with the iegulations.
Tianspaiency anu openness neeus to extenu beyonu geneial infoimation about the iegulatoiy
piocess. It neeus to extenu to the application of the iegulatoiy fiamewoik to each application foi a
lease anu a licence anu to the BFA's ongoing oveisight of each appioveu opeiation. As neaily as
possible, the objective shoulu be to make application of the entiie iegulatoiy fiamewoik an open
book.
We theiefoie iecommenu that the basic piinciple shoulu be that infoimation that is ielevant to
unueistanuing the opeiation anu effectiveness of the iegulatoiy piocess as it applies to each
pioposeu anu appioveu site shoulu be infoimation that is ieauily available to the public. This
piinciple shoulu be set out in legislation to ensuie it is binuing on the BFA anu to ensuie that public
access to infoimation coveieu by the piinciple uoes not iequiie the making of an application unuei
the 8%((/&' &< D"<&%'*)$&" *"/ 3%&)(7)$&" &< 3%$#*75 67) (F0IP0P) piocess.
Infoimation that is tiuly confiuential business infoimation shoulu be excluueu fiom this piinciple
unuei a uefinition of confiuential business infoimation set out in the legislation. Bowevei, the
assumption shoulu be that infoimation is public infoimation unless a iegulateu business cleaily
establishes it is confiuential business infoimation within the scope of the statutoiy uefinition.
xlv
The objective of oui tianspaiency iecommenuations is a level of tianspaiency anu openness that
woulu allow a membei of the public to ieauily asceitain the status of an application foi a lease anu
licence (oi foi a change oi ienewal of a lease anu licence) oi the stanuing of an appioveu opeiation
ielative to its iegulatoiy iesponsibilities at any given time.

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We heaiu peisuasive piesentations that the key to aquacultuie's futuie as a sustainable inuustiy
that enjoys social licence was a focus on the health anu well-being of faimeu animals. All of these
piesentations, which weie maue fiom a iange of peispectives, iecognizeu that the health of the
animals being iaiseu in aquacultuie was the ultimate anu funuamental baiometei of whethei
aquacultuie was oi was not being conuucteu in haimony with its suiiounuing enviionment. Put
simply, healthy fish is a stiong inuicatoi that the health of the suiiounuing enviionment is being
maintaineu while sick fish suggest the opposite. Conveisely, the natuie anu extent of aquacultuie's
uepenuence on piactices that iaise the most concein about aquacultuie's impact on the
enviionment aie linkeu veiy much to the health of the animals iaiseu in aquacultuie.
Fish health is one of the objectives of vaiious elements of the fiamewoik that have a iange of
objectives. These elements of the fiamewoik incluue:
a. Biophysical site conuitions that make a site suitable foi a paiticulai opeiation;
b. Conuitions on numbei of fish on site anu on peimitteu stocking uensities;
c. Fallow peiiou iequiiements;
u. The mixing of species on sites;
e. Limits on the numbei of anu sepaiation between peimitteu faims in paiticulai bays;
f. Cooiuination of piouuction on sites within uefineu geogiaphic aieas; vaccination
iequiiements.
In auuition, the iegulatoiy fiamewoik shoulu ueal moie explicitly anu extensively with a numbei of
matteis specific to fish health, incluuing:
a. Repoiting of notifiable uiseases;
b. The elements of the uisease suiveillance;
c. The BFA's authoiity in ielation to the management of uisease outbieaks;
u. Biosecuiity pioceuuies to be followeu to pievent the spieau of infectious uisease;
e. Regulation of the movement of fish to oi fiom a site.
We have also concluueu that the iegulatoiy fiamewoik shoulu moie cleaily uefine the animal
welfaie stanuaius that aie iequiieu in fin-fish aquacultuie. It shoulu uo this at thiee levels:
1. By outlining the animal welfaie stanuaius that shoulu geneially be met anu maintaineu
in aieas such as watei quality, stocking levels, feeuing iates, cage uesign, constiuction
anu maintenance anu geneial husbanuiy;
2. By bettei uefining uistiess (i.e. neglect) as it applies to fin-fish aquacultuie; anu
xv
S. By bettei uefining what piactices if animal management, husbanuiy anu slaughtei will
be iegaiueu as "ieasonably anu geneially accepteu" in aquacultuie in Nova Scotia foi
the puipose of ueteimining the applicability of the statutoiy piovision which cieates the
offence of causing uistiess.

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We weie tolu iepeateuly that piopei site selection anu utilization is ciitical foi an effective
iegulatoiy fiamewoik foi maiine-baseu fin-fish aquacultuie. We agiee. A suitable site is one that
has appiopiiate biophysical conuitions while being compatible with othei economically, socially,
anu cultuially impoitant activities. 0sing language fiom EuSPA, it is a site that makes a net
contiibution to sustainable piospeiity anu that can be utilizeu in a mannei that maximizes benefits
while minimizing iisk anu negative impacts.
0nuei the cuiient iegulatoiy fiamewoik, the suitability of coastal aieas foi fin-fish aquacultuie is
ueteimineu laigely if not exclusively thiough the licensing piocess. This appioach may be
inefficient anu iesouice-intensive foi both inuustiy anu iegulatois. It may also leau to avoiuable
conflict to the extent it iesults in applications foi licenses anu leases being maue foi sites that
woulu be iuentifiable as being geneially unsuitable if a moie geneial piocess of chaiacteiization
anu categoiization of the suitability of coastal aieas foi fin-fish aquacultuie was caiiieu out.
Following the appioach that is cential to Scotlanu's ielatively new iegulatoiy fiamewoik, the basic
appioach we iecommenu is a piocess of pioactive evaluation of the coastline foi the puipose of
ueteimining whethei coastal aieas aie suitable, maiginally suitable oi geneially unsuitable foi fin-
fish aquacultuie. The iesult of this piocess woulu be a uesignation of coastal aieas as being eithei
gieen, yellow oi ieu aieas foi the puiposes of fin-fish aquacultuie. In geneial teims, these
uesignations woulu have the following meaning:
uieen aieas woulu be aieas founu to be geneially suitable foi fin-fish aquacultuie;
Yellow aieas woulu be aieas that have potential to be suitable but aie not iueal anu woulu
iequiie a moie caieful appioach to site selection, a moie iigoious assessment in the
licensing anu leasing piocess, stiictei oi moie limiting teims anu conuitions foi appioval
anu auuitional iegulatoiy oveisight; anu
Reu aieas woulu be aieas that weie unlikely to be suitable foi fin-fish aquacultuie.
The ciiteiia foi classifying aieas in the system woulu be biophysical suitability anu piesence oi
absence of conflicts with othei impoitant uses oi values. A gieen aiea woulu be one in which theie
was biophysical suitability anu no seiious conflict issues. A ieu aiea woulu be one at which
biophysical conuitions show that it is highly unlikely that enviionmental stanuaius coulu be met at
the site anuoi at which seiious conflict issues aie piesent.
Regulatoiy appioval foi fin-fish aquacultuie woulu be unlikely in ieu aieas anu less likely in yellow
aieas than in gieen aieas. Whethei it woulu be given foi a site in a yellow oi ieu aiea at all woulu
uepenu on whethei the applicant foi a licence anu lease in a yellow oi ieu aiea was pioposing a fin-
fish opeiation that was suitable foi a site having yellow oi ieu aiea chaiacteiistics. Although ieu
xvl
aieas woulu be geneially off-limits foi fin-fish aquacultuie, the iegulatoiy fiamewoik shoulu not
piecluue the possibility that fin-fish aquacultuie coulu in exceptional ciicumstances be authoiizeu
in a ieu aiea. The onus of showing this was appiopiiate woulu howevei be a uifficult one to meet.

3%&7(.. <&% 644+5$"> )9( :+*..$<$7*)$&" 05.)('
An aiea (oi site) coulu be classifieu in one of thiee ways:
Thiough a pioactive anu geneial piocess of classification that opeiates in paiallel to the
licensing piocess;
Thiough stiategic assessments in the natuie of stiategic enviionmental assessments of
paiticulai coastal iegions;
In the licensing piocess wheie an application foi a fin-fish licence is maue in iespect of a
site locateu in a pieviously unclassifieu coastal aiea;
The ielationship between each of these piongs of the piocess of classification is envisageu to be
uynamic. Classification choices maue in the geneial piocess oi thiough stiategic assessment will be
taken into account as a funuamental input into the licensing piocess. Classification choices maue
thiough stiategic assessment oi in the licensing piocess woulu auu to the oveiall piogiess towaiu
compiehensive classification of the coastline, which will be the main concein of the geneial oi
oveiall classification piocess.

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Besignation of a pait of Nova Scotia's coastline as ieu, yellow oi gieen foi a paiticulai foim of
aquacultuie will have implications foi the iegulatoiy piocess foi pioposeu facilities in a uesignateu
aiea.
Fiist, a pioposeu facility in a uesignateu aiea will not have to go thiough a classification
piocess uuiing the lease anu licensing piocess. Facilities pioposeu in aieas that have not
been uesignateu will iequiie a ueteimination fiom the iegulatoi at the stait of the licensing
piocess as to whethei the site is a gieen, yellow oi ieu aiea site.
Seconu, the uesignation of an aiea as gieen, yellow oi ieu will have implications foi the
piocess of ieviewing inuiviuual applications foi a lease anu license to opeiate an
aquacultuie facility in the aiea. The iegulatoiy piocess in gieen aieas will be moie
stieamlineu, wheieas the piocess in ieu aieas will be most oneious.
Thiiu, the likelihoou of the success of an application will uiffei. In gieen aieas, it woulu be
ieasonable to expect that licenses woulu be gianteu foi well-uesigneu opeiations that aie
sensitive to othei useis anu aie pioposeu in suitable locations. The likelihoou of a
successful application in a ieu aiea woulu be veiy low.
Finally, the teims anu conuitions unuei which aquacultuie facilities woulu be licenseu to
opeiate woulu vaiy. Because of the biophysical constiaints anu potential social anu
economic conceins in yellow anu ieu aieas, opeiations that uo get appioveu will have to
xvll
meet auuitional teims anu conuitions, such as auuitional monitoiing anu iepoiting
obligations.

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In auuition to being available as a tool foi classification of coastal aieas as gieen, yellow oi ieu foi
fin-fish aquacultuie, stiategic assessment woulu also be available foi assessing the suitability of
coastal aieas foi shell-fish aquacultuie. The uetails of the piocess woulu vaiy fiom application to
application but tianspaiency anu full engagement of all inteiesteu paities, incluuing Fiist Nations,
potential opeiatois, othei useis of the coastal aiea, othei inuustiies, local iesiuents anu all levels of
goveinment woulu be iequiieu. A key goal of the piocess woulu be to integiate biophysical, social
anu economic analysis foi the puipose of evaluating suitability of the aiea foi aquacultuie
uevelopment.
Wheie stiategic assessment uoes iuentify aieas suitable foi aquacultuie, goveinment will have the
option of pioactively encouiaging uevelopment in those aieas. Licensing coulu happen on the basis
of the stiategic assessment wheie this is a known outcome at the beginning of the piocess anu
wheie the assessment ueteimines that uevelopment enjoys significant community suppoit.
0theiwise, the licensing piocess woulu apply in a stieamlineu fashion uue to the paiticipation
oppoitunities alieauy pioviueu in the stiategic assessment piocess.

F*)/#1*#5 G@*$/ D==%&H,-I ;%&)/11
The licensing moue of iegulation shoulu continue to be the moue of iegulation useu in Nova Scotia.
Bowevei, we think it shoulu be stiengtheneu in a numbei of impoitant ways.
Consistent with oui conclusion that the iegulation of aquacultuie shoulu geneially continue to be
the iesponsibility of BFA, we have concluueu that the piovincial enviionmental assessment piocess
shoulu not be applieu to the assessment of aquacultuie piojects. Insteau, we think assessments of
an application foi a licence shoulu be conuucteu on the unueistanuing that the assessment must
covei all of the giounu that an enviionmental assessment woulu covei. It shoulu in othei woius be
conuucteu as a kinu of specializeu enviionmental assessment.
The legislation goveining the licensing piocess shoulu set out the piinciples that aie expecteu to
guiue the piocess. 0ui piocess leaus us to concluue that the piinciples shoulu incluue piinciples on
the following matteis:

a. Compatibility with public iights of navigation;
b. Compatibility with fisheiy activities, incluuing the lobstei fisheiy;
c. Compatibility of the natuie anu scale of pioposeu opeiation ielative to the
biophysical, oceanogiaphic anu community context;
u. Compatibility with the activities of othei useis oi beneficiaiies of the public wateis
in question;
xvlll
e. Responsiveness to the cumulative effect of aquacultuie in the aiea; anu
f. Contiibution of the pioposeu pioject to net community socio-economic benefits.
We iecommenu a licensing piocess that consistently incluues the following key elements.
The licensing piocess will stait with the issuance of an "option to lease". This limiteu authoiization
will pioviue the uevelopei of an aquacultuie pioject with the exclusive iight to apply foi a licence
anu lease foi the site coveieu by the option to lease. This is intenueu to auuiess the concein of
inuustiy that a iequiiement that uevelopeis seek input fiom the community befoie applying foi a
lease will give competitois the oppoitunity to apply foi theii piefeiieu site aheau of them.
The public will be notifieu by BFA that an option to lease has been issueu. This ensuies the
community is maue awaie of the pioposeu pioject fiom the veiy eailiest stages of the licensing
piocess. It is the beginning of the tianspaiency that will be followeu thiough the balance of the
licensing piocess.
To apply foi a licence, the holuei of an option to lease will be iequiieu to paiticipate in a pie-
application scoping piocess that engages with anu seeks input fiom the community.
Foi an application foi a licence to be complete, it will have to incluue a Backgiounu Repoit that
incluues infoimation on the scoping piocess such as oveiall levels of community suppoit oi
opposition anu community views on: pioposeu location, scale, species, opeiatoi anu technology;
compatibility with existing uses; impacts, benefits, iisks anu unceitainties; anu what the opeiatoi
shoulu uo to minimize auveise impact. The Backgiounu Repoit will also be iequiieu to incluue a
uetaileu uesciiption of the pioposeu opeiation; a uesciiption anu analysis of biophysical conuitions
at the site; the piesence of any enuangeieu species; anu specific measuies to be taken oi iequiieu
to auuiess potential impacts. The Repoit will be a public uocument. It will seive the same puipose
as an impact statement in enviionmental assessment.
The BFA will conuuct an application scieening piocess. Input fiom the public will be ieceiveu in
the foim of comments on the application file, incluuing the Backgiounu Repoit. Input will also be
ieceiveu fiom othei iegulatois, such as BF0 at this stage of the piocess. Becision options available
at this stage woulu be to senu the application foiwaiu foi a heaiing, to ieject it as having no
piospect of success at a heaiing; oi to senu it back to the applicant foi iesubmission. Foi fin-fish
applications in ielation to sites pieviously classifieu as gieen, yellow oi ieu, that classification
woulu be taken into account at this stage of the piocess. Foi unclassifieu sites, the scieening will
assess whethei the infoimation neeueu foi classification is pait of the application.
A heaiing will be conuucteu on all applications. The heaiing will be eithei an auministiative
heaiing wheie public paiticipation is piimaiily thiough the piovision of wiitten comments anu
submissions oi an aujuuicative heaiing which incluues a moie foimal in-peison heaiing. The
heaiing will be aujuuicative wheie the application is foi a fin-fish licence in a yellow oi ieu aiea.
Bepenuing on the ciicumstances it will be auministiative oi aujuuicative foi shell-fish applications
anu foi fin-fish applications in gieen aieas.
The BFA will be iequiieu to give ieasons that explain how the uecision auuiesses the licensing
piinciples, the iegulatoiy goals anu the issues iaiseu at the heaiing.
xlx
At each stage of the piocess, BFA will have the ability to utilize inuepenuent thiiu paities in the
conuuct of the piocess. A thiiu paity coulu be manuateu to conuuct the pie-application scieening
piocess; to conuuct a latei consultation; to uo an inuepenuent stuuy oi analysis; to pioviue auvice;
oi to conuuct some oi all of the heaiing.
Licensing uecisions will be subject to appeal to the Ninistei anu fiom the Ninistei to the Supieme
Couit of Nova Scotia.
At the application scieening stage, the BFA will be iequiieu to specific the maximum uuiation foi
the oveiall licensing piocess anu foi the completion of the heaiing within the oveiall licensing
piocess. 0nless an application is withuiawn, BFA will be iequiieu to complete the heaiing anu give
a uecision within the specifieu time-fiames.

:3,#5/1 *# $3/ F/,1*#5 &2 DE(,)(-$(%/ @*$/1
We heaiu a numbei of specific conceins associateu with leases issueu foi aquacultuie opeiations.
In light of what we heaiu, we iecommenu the following changes in the auministiation of leases foi
aquacultuie:
a. Claiity that holuing a lease uepenus on holuing anu using a licence.
b. 0nuseu leases shoulu ieveit to the Ciown, at which point they woulu become
available to othei potential uevelopeis of aquacultuie. It shoulu be cleai that wheie
an aquacultuie opeiation is uiscontinueu, the lease of the opeiatoi ieveits to the
Ciown.
c. A system woulu have to be instituteu to make infoimation on the location anu
bieauth of existing leases much moie ieauily available to lanuowneis anu useis of
the coastal wateis than is cuiiently the case.
u. Lease bounuaiies shoulu be appiopiiately enfoiceu even if they uon't cause
pioblems foi navigation accoiuing to the Coast uuaiu.
e. The exclusivity of the iights of leaseholueis neeus to be claiifieu anu limiteu to what
is necessaiy foi the puipose of the function of an aquacultuie lease. Wateis that aie
leaseu foi aquacultuie continue to be public wateis.
f. Piotection foi iights of navigation shoulu be built into leases.
g. The tiansfei of leases shoulu be subject to Ciown appioval.

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We weie tolu by inuustiy iepiesentatives that one of the majoi pioblems cieateu foi the inuustiy
by the cuiient iegulatoiy fiamewoik is the limiteu tenuie it pioviues to licenseu opeiatois. In
Nova Scotia, a fiist licence is cuiiently issueu foi 1u yeais. Each subsequent licence is issueu foi S
yeais. Theie aie a gieat vaiiety of appioaches to the uuiation of licences, leases anu appiovals in
othei juiisuictions. We iecommenu that the tenuie of appioveu aquacultuie opeiations be
stiuctuieu as follows:
xx
a. The initial lease shoulu be gianteu foi 2u yeais, subject to holuing a coiiesponuing
licence.
b. The initial licence woulu be ievieweu aftei one giowing cycle in light of the success
of the opeiatoi in establishing anu conuucting a site that geneially meets iegulaily
iequiiements, incluuing enviionmental peifoimance iequiiements.
c. Renewals shoulu be ueciueu upon thiough an open, tianspaient anu paiticipatoiy
licensing ienewal piocess.
u. The length of licence ienewals shoulu ieflect enviionmental peifoimance, anu the
compliance iecoiu of the opeiatoi.
e. Any licence woulu always be subject to the authoiity of the Ninistei to cancel foi
iegulatoiy infiactions that woulu make ievocation an appiopiiate, faii anu just
sanction.

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It is impoitant that the piocess foi tiansfeis in owneiship oi opeiatoi, anu change in teims anu
conuitions be cleai, anu that it be open anu tianspaient.
Theie shoulu be a iequiiement foi public notification when an application foi a tiansfei of a lease
has been maue. The public shoulu have the oppoitunity to submit comments to the Ninistei on the
pioposeu tiansfei.
A key factoi in ueciuing whethei to appiove a tiansfei in owneiship oi opeiatoi is whethei the
pioposeu new ownei oi opeiatoi is likely to ueal constiuctively with othei coastal useis anu
affecteu communities. Similai consiueiations shoulu guiue the piocess anu uecisions on
expansions, changes in species, anu othei significant changes to the teims anu conuitions of an
existing licence.

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It is cleai to us that the iegulatoiy fiamewoik foi aquacultuie must pay paiticulai attention to the
potential inteiactions of salmon maiine-baseu salmon aquacultuie with wilu salmon. It is cleai that
concein foi wilu salmon populations is an impoitant pait of the global woik taking place in
multiple foiums to ieuuce the enviionmental impact anu impiove the sustainability of fin-fish
aquacultuie, incluuing by impioving the iegulation of aquacultuie.
The legitimate conceins about how the giowth anu conuuct of the inuustiy might impact wilu
salmon aie among the conceins that have leu us to make the iecommenuations we have maue
elsewheie in this uocument on a numbei of coie elements of the iegulatoiy fiamewoik incluuing on
site selection anu utilization, fallowing anu stocking uensities, anu fish health anu well-being.
The iegulatoiy fiamewoik shoulu howevei also incluue a numbei of elements that aie moie
specifically uiiecteu to the piotection of wilu salmon. To that enu, piotection foi wilu salmon
woulu be listeu in legislations one of the ciiteiia to be consiueieu in leasing anu licensing uecisions.
xxl
The iegulatoiy fiamewoik shoulu also be cleai anu explicit about the neeu foi appiopiiate physical
sepaiation between maiine-baseu aquacultuie anu salmon iiveis anu known salmon migiation
ioutes. While BFA shoulu continue to iely on BF0 auvice anu iequiiements unuei the feueial
04(7$(. *) ;$.A 67), it shoulu be a cleai element of the iegulatoiy fiamewoik that BFA will go
beyonu what is iecommenueu by BF0 wheie BFA ueteimines that an auuitional level of piotection
foi wilu salmon is appiopiiate oi calleu foi.
0ui seconu iecommenuation foi specific attention to the piotection of wilu salmon is that the
iegulatoiy fiamewoik shoulu ueal moie extensively with the pievention of escapes, geneially along
the lines of what has been implementeu in Naine, thiough a iequiiement foi auoption by salmon
faims of a compiehensive anu integiateu containment system.

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A new iegulatoiy fiamewoik will not obtain the public tiust anu confiuence it neeus to be
successful unless it incluues a stiong commitment to effective monitoiing of compliance anu to
effective enfoicement.
In this section of the iepoit, we ieiteiate the iecommenuations maue in othei paits of the iepoits
that will stiengthen monitoiing anuoi enfoicement while also auuiessing othei issues. Examples
incluue the iecommenuation to move iesponsibility foi auministiation of enviionmental
monitoiing to the Bepaitment of Enviionment the iegulatoiy piocess. We then outline auuitional
enhancements to monitoiing anu enfoicement, as follows:
a. Noie inspectois fully tiaineu foi aquacultuie;
b. Noie inspections anu moie unannounceu inspections;
c. Noie capacity to investigate complaints about the compliance of a facility;
u. Noie capacity to caiiy out aeiial suiveillance anu access to vessels to caiiy out
inspections;
e. A bioauei iange of compliance measuies anu a cleai policy on how they aie useu to
ensuie compliance, incluuing incieaseu ieliance on piosecutions;
f. Complete tianspaiency about violations iegaiuless of what compliance action is
taken;
g. A cleai link between compliance peifoimance, anu the licensing piocess, incluuing
teims of licences, issuance of new licences, monitoiing anu iepoiting obligations,
anu ienewal of licences.

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We iecommenu that an ongoing Regulatoiy Auvisoiy Committee (RAC) be stiuck to continue to
meet at least once a yeai to auvise BFA on the implementation of aquacultuie iegulations, on
possible changes to the iegulatoiy fiamewoik in the futuie, on significant policy issues ielating to
xxll
iegulation as they aiise anu on the oveiall effectiveness of the iegulatoiy fiamewoik. The RAC
coulu also be a foium foi the uiscussion of emeiging issues in the iegulation of aquacultuie oi in the
aquacultuie inuustiy that may call foi a iegulatoiy iesponse. The RAC shoulu be maue up of
appioximately 1u membeis anu incluue iepiesentation fiom Fiist Nations anu the following
inteiests:
Nunicipalities
Aquacultuie inuustiy
Fishing inuustiy
Coastal communities
Enviionmental anu conseivation oiganizations
Economic uevelopment anu touiism inteiests.

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We iecommenu that the BFA establish an ongoing mechanism foi consulting with expeits on the
science of aquacultuie anu its iegulation. Bowevei constiucteu, the iuea woulu be that a stanuing
mechanism woulu link BFA with a community of expeits in the science of aquacultuie to facilitate
BFA's access to the combineu expeitise. Inviteu expeits shoulu incluue those who holu ielevant
local anu tiauitional knowleuge. Those who agiee to paiticipate woulu have a channel thiough
which to contiibute to the effectiveness of iegulation anu to uecision-making in the aquacultuie
sectoi moie bioauly. 0ui expeiience suggests many expeits acioss Atlantic Canaua aie fully
piepaieu to make this kinu of contiibution anu woulu welcome an avenue to uo so on a continuing
basis. This mechanism coulu also help to iuentify anu suppoit the ieseaich neeueu to fill
infoimation gaps anu ieuuce unceitainty in oui unueistanuing of the impacts of aquacultuie.


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In legislation that has similaiity with the :&*.)*+ ;(.&1%7(. B*"*>('(") 67), a manuatoiy five-yeai
ieview has pioven to be useful in Nova Scotia in making legislation bettei. In oui view, the same
can be expecteu fiom a ieview of a bioauei iegulatoiy fiamewoik which woulu incluue the
amenuments which woulu be maue to the Act anu iegulations to implement the fiamewoik but
which woulu also encompass the iole of the BFA in making the fiamewoik opeiational thiough
licensing anu leasing, monitoiing anu enfoicement, anu woiking with the BF0 anu othei feueial
iegulatois anu scientific anu iegulatoiy auvisoiy gioups.

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This iepoit ueals with a numbei of othei issues. These aie:

xxlll
The site closuie anu clean-up obligations of licensees;
The ielationship of the iegulatoiy fiamewoik to inuustiy coues of piactice;
The ielationship of iegulation to thiiu paity ceitification; anu
The access of the inuustiy to woiking capital thiough the Fisheiies anu Aquacultuie Loan
Boaiu oi the piovincial goveinment; anu
Emeiging issues that the iegulatoiy fiamewoik will oi may have to face in the neai futuie.


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We have concluueu that the iegulatoiy fiamewoik we piopose can be implementeu thiough
amenuments to the 8$.9(%$(. *"/ :&*.)*+ ;(.&1%7(. 67) anu iegulations maue unuei the Act.
Applications foi new fin-fish aquacultuie licences shoulu be piocesseu unuei the pioposeu
iegulatoiy fiamewoik. The pioposeu iegulatoiy fiamewoik shoulu be applicable to the opeiation
of alieauy licenseu aquacultuie.
The inteiests anu conceins of aboiiginal peoples in Nova Scotia ielative to aquacultuie shoulu be
exploieu in uiiect uiscussions between the goveinment anu Fiist Nations.







1
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This uocument lays out oui conclusions anu iecommenuations on a new iegulatoiy fiamewoik foi
aquacultuie in Nova Scotia. Fiom the length anu uetaileu natuie of the uocument, it is obvious that
we have concluueu that the iegulatoiy fiamewoik that is neeueu is funuamentally uiffeient fiom
the cuiient one. In othei woius, we have concluueu that the iegulation of aquacultuie in Nova
Scotia neeus to be completely oveihauleu. This is paiticulaily tiue foi fin-fish aquacultuie but it is
tiue in impoitant iespects foi the inuustiy as a whole, paiticulaily in its iole in the life of the
communities in which it is locateu oi neaiby.
In its natuie, iegulation is about the pievention oi ieuuction of haim. Accoiuingly, most of this
uocument ueals with how the aquacultuie inuustiy shoulu be iegulateu to pievent oi ieuuce the
iisk of haim that can occui if aquacultuie is conuucteu without uue iegaiu foi the enviionment,
local communities anu the piotection anu piouuctive use of public coastal iesouices.
0ui manuate was howevei, bioauei. In pioposing "a state-of-the-ait iegulatoiy fiamewoik foi the
aquacultuie inuustiy in NS", the Panel was askeu to "stiive to make its iecommenuations in light of
the best long-teim enviionmental, social anu economic inteiests of the piovince, in accoiuance with
piioiities, piinciples, anu inteiests as aiticulateu in ielevant Nova Scotia legislation, incluuing the
Enviionmental uoals anu Sustainable Piospeiity Act". We appioacheu this bioauei aspect of oui
manuate with the awaieness, which is built into the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5
67) L!-036M, that iegulation is only one of the tools of goveinance that goveinments anu societies
use to auvance long-teim enviionmental, social anu economic inteiests.
Not suipiisingly, we heaiu moie in oui piocess about the auveise impact of aquacultuie that
people wanteu the iegulation of aquacultuie to auuiess than we uiu about the potential economic
oi social benefits of aquacultuie oi its futuie. Neveitheless, we uiu heai quite a bit about what the
inuustiy was contiibuting oi coulu contiibute to Nova Scotia's economy anu about the
ueteiminants of the inuustiy's economic success. Foi example, we heaiu about the impoitance of
scale to the inuustiy's competitiveness in national anu global maikets. At the same time, we heaiu
about the impoitance of uiveisity, between anu within sectois of the inuustiy, to the iesiliency anu
sustainability of the inuustiy anu to its ability to cieate oppoitunities foi entiepieneuis anu foi
iuial communities to benefit fiom the effoits of entiepieneuis. As anothei example, we heaiu
about innovation that has happeneu oi is occuiiing in Nova Scotia's inuustiy anu about the
uifficulties the inuustiy has faceu in giowing in Nova Scotia uespite that innovation, incluuing
because of uneven, unceitain anu inauequate suppoit fiom goveinment. We heaiu both about the
neeu of the inuustiy to be cuiient with global tienus in piouuctivity anu in ieuucing its
enviionmental footpiint anu the impoitance of avoiuing piesciiptive iegulations that can stymie
the inuustiy's evolution anu uevelopment.
2
Buiing oui piocess, the 0ne Nova Scotia Commission completeu its woik anu issueu its final iepoit,
Now oi Nevei: An 0igent Call to Action foi Nova Scotia. Seveial of the cential messages to be taken
fiom that woik aie ielevant to the bioauei aspect of oui manuate to make iecommenuations on
iegulation that auuiess Nova Scotia's long-teim enviionmental, social anu economic inteiests of the
piovince as aiticulateu in the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67). 0ne of these
messages is that Nova Scotia's piospeiity uepenus on businesses that piouuce value fiom the
piovince's natuial iesouices. Anothei is the ciucial impoitance of innovation anu
entiepieneuiship in anu beyonu the natuial iesouices sectois. A thiiu is the iecognition that Nova
Scotians expect economic piospeiity to be combineu with enviionmental stewaiuship. A fouith is
that Nova Scotians must be piepaieu to say yes to the economic oppoitunities it has if it is to
ieveise the cuiient tienu to towaius long-teim economic anu social uecline.
Putting these coie messages of Now oi Nevei togethei, a laigei conclusion is that Nova Scotia's
piospeiity iequiies Nova Scotians to excel at ueveloping the natuial iesouices of the piovince in
ways that combine wealth cieation with the continuing piouuctivity of those iesouices anu the
well-being of the bioauei enviionment. This is similai to the philosophy that unueilies the
!"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67). The Act says that the long-teim objective of
Nova Scotia is to achieve sustainable piospeiity, which the Act uefines as "seizing touay's
oppoitunities without compiomising tomoiiow, while woiking togethei foi a stiong, competitive
economy, a healthy enviionment anu vibiant, thiiving communities". Noieovei, subsection S(2) of
the Act pioclaims a numbei of founuational piinciples that, like Now oi Nevei, call foi integiation
between economic, enviionmental anu social well-being thiough innovation, as follows:
S (2) This Act is baseu on the following piinciples:
(a) the health of the economy, the health of the enviionment anu the health of the people of
the Piovince aie inteiconnecteu;
(b) enviionmentally sustainable economic giowth that iecognizes the economic value of the
Piovince's enviionmental assets is essential to the long-teim piospeiity of the Piovince;
(c) the enviionment anu the economy of the Piovince aie a shaieu iesponsibility of all
levels of goveinment, the piivate sectoi anu all people of the Piovince;
(u) the enviionment anu economy must be manageu foi the benefit of piesent anu futuie
geneiations, which is in keeping with the Ni'kmaq concept of Netukulimk, uefineu by the
Ni'kmaq as the use of the natuial bounty pioviueu by the Cieatoi foi the self-suppoit anu
well-being of the inuiviuual anu the community by achieving auequate stanuaius of
community nutiition anu economic well-being without jeopaiuizing the integiity, uiveisity
oi piouuctivity of oui enviionment;
(e) innovative solutions aie necessaiy to mutually ieinfoice the enviionment anu the
economy;
3
(f) a long-teim appioach to planning anu uecision-making is necessaiy to haimonize the
Piovince's goals of economic piospeiity anu enviionmental sustainability;
(g) the management of goals foi sustainable piospeiity, such as emission ieuuction anu
incieasing the amount of legally piotecteu lanu will pieseive anu impiove the Piovince's
enviionment anu economy foi futuie geneiations.
Applying these piinciples anu the concepts unueilying both the Act anu Now oi Nevei to oui
manuate leaus us to concluue that the kinu of aquacultuie that fits with the Act anu with Now oi
Nevei is low impacthigh value aquacultuie. In oui view, this is aquacultuie that combines two
funuamental attiibutes:

A low level of auveise enviionmental anu social impact which uecieases ovei time; anu
A positive economic anu social value fiom the use of Nova Scotia's coastal iesouices, which
is high anu incieases ovei time.

In auuition to being consistent with the Act anu Now oi Nevei, oui woik suggests this may be the
only kinu of aquacultuie that Nova Scotia can have if it is to have a successful anu giowing
aquacultuie inuustiy. We say this foi two ieasons.
Fiist, significant maiket foices aie at play suggesting that the giowth in uemanu foi faimeu fish anu
seafoou, paiticulaily foi faimeu salmon, will be foi fish anu seafoou that have been piouuceu with
low anu sustainable levels of enviionmental impact. These foices incluue new global ceitification
piogiams agieeu to by majoi piouuceis of faimeu salmon anu leauing inteinational enviionmental
oiganizations. They incluue the move towaius highei anu moie uemanuing levels of iegulation in
many of the high piouucing juiisuictions, such as Noiway, Scotlanu, Chile, New Biunswick anu
Naine.
Nost funuamentally, the foices incluue giowing consumei uemanu foi sustainable fish anu seafoou
piouucts that eithei uiives oi is suppoiteu by the souicing of sustainable fish anu seafoou piouucts
by majoi ietaileis. No uoubt the impact of these foices in the shoit-teim can be oveistateu. But the
longei-teim uiiection of change in the maiket in favoui of piouucts that can be cieuibly bianueu as
sustainable seems self-eviuent. Although we uo not uoubt that theie will continue to be a maiket
foi low-cost high volume piouuction, we uoubt Nova Scotia's competitive auvantage in that maiket
oi that Nova Scotians woulu accept aquacultuie conuucteu in a mannei iequiieu to be competitive
in that maiket.
This biings us to oui seconu ieason foi suggesting low impacthigh value aquacultuie may be the
only option foi the inuustiy's futuie in Nova Scotia. It is that it is unlikely that any othei appioach
to aquacultuie can enjoy oi maintain the social licence, paiticulaily in coastal communities, that
aquacultuie must enjoy in Nova Scotia if it is to giow anu piospei. While this is tiue of all
aquacultuie, we think it is paiticulaily tiue of maiine-baseu salmon faiming. We base this
conclusion laigely on what we heaiu fiom Nova Scotians who live close to aquacultuie but also on
oui uiscussions with national anu piovincial iegulatois of aquacultuie, on oui unueistanuing of the
stiengthening of iegulations taking place in othei juiisuictions, on the maiket foices listeu above
4
anu on the conveisations we have hau with a numbei of people in the aquacultuie inuustiy oi who
woik closely with the aquacultuie inuustiy.
Foi these ieasons, oui conclusion is that a iegulatoiy fiamewoik that is both "woilu class" anu
consistent with Nova Scotia's long-teim enviionmental, social anu economic inteiests as aiticulateu
in the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67) is one that is ueciueuly on the siue of low
impacthigh value aquacultuie. That is the kinu of iegulatoiy fiamewoik that is intenueu by the
iecommenuations set out in the balance of this uocument. In consequence, the iegulatoiy
fiamewoik we piopose is intenueu not only to contiol the impact of aquacultuie but to also
contiibute to the value that aquacultuie can yielu.

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0ui iegulatoiy ieview piocess incluueu a numbei of oppoitunities to heai fiom stakeholueis anu
membeis of the public. We uo not intenu to pioviue a uetaileu account of what we heaiu thiough
these vaiious foiums, as this infoimation is ieauily available on oui website at
www.aquacultuieieview.ca. We uo think, howevei, it is impoitant to offei a summaiy of some of
the high-level views we heaiu most consistently that aie most impoitant foi setting the stage foi
the pioposeu iegulatoiy fiamewoik. These views incluue:
ueneially positive views of shell-fish aquacultuie;
Nany conceins about maiine-baseu fin-fish aquacultuie anu potential giowth of that kinu of
aquacultuie;
Nany calls foi enu to maiine-baseu aquacultuie oi at least to any fuithei giowth in maiine-
baseu aquacultuie;
Significant suppoit foi limiting fin-fish aquacultuie to lanu-baseu facilities;
Significant suppoit foi the view that goveinment shoulu not be subsiuizing maiine-baseu
aquacultuie by funuing its uevelopment with taxpayei uollais, by compensating opeiatois
foi uestiuction of uiseaseu fish, oi by peimitting uischaige of waste into the maiine
enviionment;
Wiuespieau concein about the capacity anu will of the BFA to effectively iegulate the
inuustiy anu especially maiine-baseu fin-fish aquacultuie;
Range of inuustiy conceins that the cuiient appioach to iegulation of the inuustiy is
stymying giowth;
Although theie aie veiy uiffeient views as to what a bettei iegulatoiy fiamewoik woulu be,
theie was wiuespieau suppoit foi a bettei iegulatoiy fiamewoik.

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As pait of oui iegulatoiy ieview piocess, we engageu with the Knowleuge Rostei we establisheu on
the key conceins we iuentifieu fiom the community sessions, stakeholuei meetings anu the
Rounutable piocess about enviionmental impacts of aquacultuie. The key conceins all involveu
3
fin-fish opeiations in coastal wateis. The following summaiizes oui conclusions on thiee key aieas
of concein, benthic impact, watei pollution anu impact on wilu salmon.

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With iespect to benthic impacts fiom fin-fish opeiations in coastal wateis, the accumulation of fecal
mattei anu waste feeu weie iaiseu most fiequently by paiticipants in oui piocess. We consulteu
with membeis of the Knowleuge Rostei on these issues as pait of a woikshop on the impact of
aquacultuie on maiine species othei than salmon, which in tuin was the subject of a sepaiate
Knowleuge Woikshop.
A key concein with waste feeu is that it can contiibute to anoxic conuitions of the benthic
enviionment below fin-fish cages. It uoes so because it contains nutiients foi bacteiia in the
benthic enviionment that then use up oxygen, ieuucing the availability of oxygen in the benthic
enviionment, which in tuin cieates less favouiable conuitions foi a numbei of maiine species.
We leaineu that waste feeu can be ieuuceu significantly thiough best piactices in feeuing methous,
but it seems cleai that some feeu will still fall thiough the cages. The oveiall impact of waste feeu
on oxic conuitions is laigely a function of the size of the opeiation anu feeuing methou in
ielationship to watei uepth anu flushing, in combination with fallowing peiious. The impact of
waste feeu on oxic conuitions of the benthic enviionments is ielatively smallei than the impact
fiom fecal mattei, but it inteiacts cumulatively with fecal mattei.
The amount of fecal mattei that ieaches the benthic enviionment below a site is laigely a function
of the numbei of fish pei site, the age class of the fish anu the biophysical conuitions of the site.
Fecal mattei ueposit is gieatest towaiu the enu of the giowing cycle. 0f couise, as was pointeu out
to us by a numbei of paiticipants, the ueposit of fecal mattei fiom fish is a natuial piocess. The
main issue is the concentiation of fecal mattei in a given location as a iesult of an intensive fin-fish
opeiation. The enviionmental impact fiom fecal mattei is theiefoie laigely a function of stocking
anu uensity levels in ielation to watei uepth anu flushing in combination with fallowing peiious.
Theie is also concein about the accumulation of non-natuial substances in the benthic
enviionment, which can have auveise impacts on maiine life. Possible pollutants incluue
meuication fiom waste feeu (antibiotics, SLICE), zinc anu coppei fiom waste feeu anu fiom anti-
fouling agents, anu pesticiues useu to tieat sea lice. As we uiscuss latei in this iepoit, we feel that
iisks anu unceitainties aiounu these impacts waiiant a iegulatoiy appioach that seeks to minimize
anu wheie possible to pievent the ielease of these substances.

P9Y9W N,$/% ;&--($*&#
Thioughout oui piocess, paiticipants expiesseu concein to us about the impact of fin-fish
aquacultuie opeiations on watei quality. In paiticulai, we heaiu conceins about the ielease of
chemicals, such as anti-fouling agents, the ielease of meuication anu pesticiues into coastal wateis.
6
Conceins weie also iaiseu by some about fuels anu opeiational uischaiges, as well as uebiis anu
suiface wastes fiom aquacultuie opeiations.
Fin-fish opeiations in coastal wateis contiibute to iaiseu levels of zinc anu coppei thiough waste
feeu anu fiom antifouling agents useu in aquacultuie opeiations. Theie was geneial agieement
among paiticipants in the Knowleuge Woikshop on pollution that iaiseu levels of zinc anu coppei
aie of concein in the maiine enviionment. Theie weie uiffeient opinions as to the extent of the
haim poseu fiom the ieleases of these substances fiom aquacultuie. The contiibution each of the
two majoi souices makes to the levels of zinc anu coppei will veiy much uepenu on conuitions at
the site, anu on opeiational uetails, such as the feeuing methou, anu the mannei in which anti-
fouling agents aie useu. It seems, howevei, that anti-fouling agents aie geneially the moie
significant contiibutoi to the ielease of zinc anu coppei into the maiine enviionment, paiticulaily
in the watei column. 0ui conclusion, baseu on the infoimation we ieceiveu fiom the Knowleuge
Rostei, is that the ielease of these chemicals shoulu be minimizeu anu eliminateu wheie possible.
As elaboiateu latei in this iepoit, the chemical tieatment of aquacultuie equipment to pievent
fouling shoulu be piohibiteu. This, in combination with best piactices in feeuing methous, shoulu
minimize the ielease of zinc anu coppei fiom aquacultuie opeiations.
Anothei concein we heaiu fiom a numbei of paiticipants is the ielease of antibiotics fiom waste
feeu into coastal wateis. Conceins associateu with this ielease iange fiom contamination of wilu
fish to the inciease of antibiotic iesistance of bacteiia. We leaineu that 4 classes of antibiotics aie
appioveu foi use feeu in aquacultuie by Bealth Canaua: oxytetiacycline, floifenicol, anu two types
of tiimethopiim sulfas. We weie tolu that oxytetiacycline anu floifenicol aie useu but that the
tiimethopiim sulfas aie not. Piovincially iegulateu veteiinaiians oveisee the use of antibiotics.
Theie was geneial agieement at the Knowleuge Woikshop on pollution that bacteiial iesistance
can occui ovei time, anu that the accumulation of antibiotics, paiticulaily in the seuiment, is a
concein. Ninimizing the ielease of antibiotics, thiough a combination of feeuing piactices that
minimize feeu waste, anu minimizing oi eliminating the neeu to use antibiotics, is theiefoie cleaily
uesiiable.
Nany paiticipants weie similaily conceineu about the ielease of pesticiues, both in feeu anu in the
foim of "bath tieatments". When pesticiues aie useu it is to tieat sea lice infestations. The main
conceins with pesticiues aie theii acute toxicity, theii peisistence, anu the compounus they bieak
into. Paiticipants in the Knowleuge Woikshop on pollution geneially agieeu that the pesticiues
appioveu foi use in aquacultuie aie uesigneu to bieak uown quickly into less haimful substances.
0nly veiy few pesticiues aie appioveu foi sea lice tieatment in aquacultuie opeiations in Canaua,
fewei than in othei juiisuictions. Some pesticiues appioveu in othei juiisuictions aie not appioveu
in Canaua uue to concein about theii peisistence in the enviionment.
The oveiall conclusion appeais to be that while Canaua seems to be taking a moie cautious
appioach to the appioval of pesticiues foi use in aquacultuie than some othei juiisuictions, theie is
goou ieason to make eveiy effoit to minimize the use of pesticiues. Theie has not been a confiimeu
application of pesticiues to tieat sea lice in Nova Scotia foi at least a uecaue. In othei juiisuictions,
incluuing New Biunswick, opeiatois have hau uifficulties managing sea lice infestations at theii
opeiations. The use of SLICE in feeu has become ineffective in New Biunswick, leaving opeiatois to
7
push foi the appioval of "bath tieatments" of pesticiues. Fuitheimoie, an unauthoiizeu application
in New Biunswick iesulteu in a significant kill of lobstei. 0ui conclusion is that an effective
iegulatoiy system in Nova Scotia will seek to manage the sea lice pioblem thiough piopei site
selection, anu iesponsible opeiation of sites, with the goal of avoiuing the neeu foi the use of "bath
tieatment" of pesticiues.
0thei pollution conceins iaiseu incluue fuels anu opeiational uischaiges fiom seivice vessels, anu
suiface wastes anu maiine uebiis fiom opeiations. In oui view, theie is no ieason why a well-iun
opeiation woulu iesult in any significant impact. Theie is eveiy ieason to think that a well-
uesigneu anu implementeu iegulatoiy system will auuiess these conceins.

P9Y9Y "0=,)$ &# N*-' @,-0&#
Nany of those who paiticipateu in oui piocess weie veiy conceineu that the giowth of maiine-
baseu fin-fish aquacultuie in Nova Scotia is one moie thieat to the alieauy thieateneu Atlantic
salmon populations of Nova Scotia's iiveis. This concein was stiongly anu unequivocally
aiticulateu by oiganizations that aie ueuicateu to the conseivation anu piotection of the Atlantic
salmon, incluuing the Atlantic Salmon Feueiation anu the Nova Scotia Salmon Association, anu by
many local salmon conseivation associations acioss the piovince. It was also communicateu to us
by the Ecology Action Centie anu by many angleis. These paiticipants in oui piocess weie among
the stiongest auvocates foi a policy that limiteu salmon faiming to closeu-containment systems
locateu on lanu.
In oui Knowleuge Woikshop on the impact of aquacultuie on wilu salmon, it was emphasizeu that
wilu Atlantic salmon face a iange of thieats that pose gieatei uangei to the suivival anu iecoveiy of
wilu salmon populations than coulu be poseu by maiine-baseu aquacultuie, paiticulaily as it is
cuiiently piactiseu. It was also emphasizeu that theie is no ieseaich showing that the continuing
uecline in the numbeis of wilu Atlantic salmon at a population scale is significantly causeu by
salmon faiming. Rathei, the combineu effect of moie funuamental factois, such as loss of habitat,
aciu iain, the legacy of histoiic oveifishing anu low population numbeis, weie stiesseu.
0n the othei hanu, oui Knowleuge Woikshop inuicateu that paiticulai sub-populations of wilu
Atlantic salmon have been negatively impacteu by maiine-baseu salmon faiming. Reseaich in New
Biunswick's Nagaguauavic Rivei has shown that wilu salmon weie entiiely uisplaceu fiom that
iivei by the late 199u's thiough the inteibieeuing of wilu salmon with escapeu salmon anu theii
offspiing. It was saiu that this happeneu when the inuustiy hau a much highei numbei of escapes
than it now uoes. Some uebateu this on the basis of the numbei of escapes they believe have
iecently happeneu in Nova Scotia. 0ui view is that even accepting that pievention of escapes is
gieatly impioveu, the ieseaich shows that salmon faiming can seiiously haim wilu salmon if
escapes aie not pieventeu. It is impoitant in this connection that the auveise impact of inteiaction
between escapeu faim fish anu wilu fish is not only a function of the numbei of escapes but also of
the numbei of fish in the wilu population. With a smallei population of wilu fish, a smallei numbei
of escapes may be sufficient to cause an auveise impact on the genetic composition of the wilu fish
population. This is ielevant because the numbei of salmon left in many of Nova Scotia's iiveis is
8
veiy small compaieu to the numbei of fish that woulu have been piesent in the Nagaguauavic when
salmon aquacultuie staiteu in southwestein New Biunswick.
In oui Knowleuge Woikshop, the uiscussion of the concein that maiine-baseu fin-fish aquacultuie
can haim wilu salmon by incieasing theii exposuie to sea lice infestation anu to ISA was similaily
nuanceu. 0n sea lice, it was stateu that sea lice levels in Nova Scotia aie below the levels at which
tieatment foi sea lice woulu be iequiieu. Fiom this, it coulu be concluueu that Atlantic salmon aie
not cuiiently facing a gieatei iisk of sea lice infestation in Nova Scotia uue to aquacultuie than they
woulu otheiwise be facing fiom the level of sea lice which exists inuepenuently of aquacultuie.
This allows aquacultuie to be conuucteu in Nova Scotia, at least foi the time being, without use of
the tieatments foi sea lice that geneiate some of the conceins about aquacultuie's bioauei impact
on the enviionment anu othei species. It might also be concluueu fiom oui Woikshop that ISA may
be piimaiily a concein foi the health anu well-being of faimeu fish.
0n the othei hanu, the haim that sea lice is capable of causing to an Atlantic salmon was not
questioneu in oui Woikshop oi, foi the most pait, in any othei pait of oui piocess. Anu it is
possible, as some suggesteu to us, that the cuiient low pievalence of sea lice is, at least in pait, uue
to the ielatively limiteu scale anu wiuei uistiibution of the inuustiy in Nova Scotia. In any event,
Nova Scotia's objective shoulu be to ensuie sea lice uoes not become a pioblem foi faimeu salmon
oi wilu salmon in Nova Scotia.
0n ISA, we weie tolu that cuiient ieseaich suggests that faimeu salmon aie moie likely to contiact
pathogenic stiains of ISA fiom wilu salmon than the othei way aiounu anu that wilu salmon have
gieatei iesistance to ISA than uo faimeu salmon. We heaiu that ISA is not easily tiansmitteu
between faimeu anu wilu fish. 0n the othei hanu, the Woikshop uiscussion also maue it cleai that
theie is no uefinitive knowleuge as to how the uisease moves between faimeu anu wilu populations
oi as to the seveiity of the iisk it piesents to wilu salmon.
0n both the sea lice anu ISA iisk, we attach impoitance to the statements maue in oui Woikshop
anu elsewheie in oui piocess that the iisk to wilu salmon (as well as to faimeu salmon) may
inciease anu become moie uifficult to contiol if salmon faiming is alloweu to uevelop in too
concentiateu a fashion. Theie was also bioau agieement with the view that both of these iisks,
along with the iisk of genetic uisiuption thiough inteibieeuing, waiianteu some level of physical
sepaiation between fish faiming anu wilu salmon habitat anu migiation ioutes. While this point
was maue in the context of a uiscussion about piotection of wilu salmon fiom faimeu salmon, it
seems to us that it may also be impoitant to the piotection of faimeu salmon fiom wilu, at least
wheie the numbei of wilu salmon aie laige enough to inciease sea lice oi ISA iisk to faimeu
salmon.
Anothei consiueiation is impoitant to oui conclusions on the emphasis that the iegulatoiy
fiamewoik shoulu place on the piotection of wilu salmon. It is ciucial to keep in minu the
thieateneu status of the wilu Atlantic salmon population. Some populations of Atlantic salmon have
been ueclaieu an enuangeieu species anu othei populations, incluuing some in Nova Scotia, eithei
aie oi aie likely to be consiueieu foi the same uesignation. But whethei inuiviuual populations aie
oi aie not foimally ueclaieu to be enuangeieu, all wilu salmon populations in Nova Scotia aie
cleaily in jeopaiuy. In oui view, this calls foi a piecautionaiy piotective appioach to all human
9
activities that potentially auu to the uifficulty facing the wilu salmon population, incluuing
aquacultuie. The fact that othei activities also neeu to be bettei contiolleu if salmon populations
aie to be piotecteu anu have a chance to iecovei is a goou aigument foi bettei management oi
iegulation of those activities but not a goou aigument foi ueveloping oi conuucting aquacultuie on
the basis that the iisk it poses to wilu salmon populations is small oi unimpoitant. If the cumulative
impact is significant, any human activity that contiibutes to the cumulative impact is of concein.

P9Z J3/ 4/E(/1$ 2&% , ;/%0,#/#$ O&%,$&%*(0 &# O,%*#/CQ,1/' +*#C2*13 DE(,)(-$(%/
We weie uigeu by many to iecommenu a peimanent moiatoiium on licensing of auuitional fin-fish
aquacultuie sites in coastal wateis.
1
Almost as often, we weie uigeu to iecommenu the
uiscontinuation of existing maiine-baseu fin-fish opeiations. We weie tolu these iecommenuations
weie waiianteu foi multiple ieasons, incluuing: the auveise impact of fin-fish aquacultuie on the
maiine enviionment anu coastlines; the iisk which fin-fish opeiations poseu to wilu salmon
populations; the incompatibility of fin-fish aquacultuie with the fishing inuustiy, paiticulaily the
lobstei fisheiy; the negative impact of fin-fish aquacultuie on the lives of those who live on the
coastline in pioximity to fin-fish sites; anu the inability of iegulation, even of goou iegulations
effectively enfoiceu, to auuiess the pioblems.
0sually, those who pioposeu a peimanent moiatoiium aigueu that fin-fish aquacultuie shoulu be
iestiicteu to containeu facilities locateu on lanu.
2
The piimaiy iationale was to avoiu the pollution
of the maiine enviionment associateu with maiine-baseu opeiations, anu concein about iisk to
wilu salmon populations.
S
In effect, pioponents of limiting fin-fish aquacultuie to lanu aigueu that
because of the auveise impacts of maiine-baseu opeiations anu the technical anu economic
viability of containeu lanu-baseu systems, the lattei shoulu be the only kinu of fin-fish aquacultuie
alloweu.
4
In opposition to these views, some people in the inuustiy aigueu that a lanu-baseu
inuustiy was not technically oi economically viable, at least not at the scale neeueu to ieplace the
maiine-baseu salmon-faiming inuustiy.
0ui manuate assumes the continuing existence of an aquacultuie inuustiy to be iegulateu. Nova
Scotia can howevei have an aquacultuie inuustiy with oi without maiine-baseu fin-fish
aquacultuie oi with oi without expanuing this sectoi of the inuustiy. We have caiefully consiueieu
the views expiesseu to us, paiticulaily those with iesiuences close to maiine-baseu fin-fish

1
1he 8oundLable expressed parLlal supporL for Lhe recommendaLlon LhaL, 1he rovlnce should noL approve new
open-pen flnflsh operaLlons unLll Lhe new regulaLory reglme ls ln place." (8oundLable llnal 8eporL, page 22)
2
1hls vlew was noL adopLed by Lhe 8oundLable, as a recommendaLlon along Lhese llnes (no new open-pen
operaLlons should be approved, and all exlsLlng open-pen operaLlons should be removed from coasLal waLers
wlLhln flve years") was noL supporLed, wlLh more 'no' voLes Lhan 'yes' and 'maybe' voLes comblned. (8oundLable
llnal 8eporL, page 23)
3
1hls can be seen ln Lhe 8oundLable recommendaLlon (wlLh parLlal supporL), LhaL 1he regulaLory framework
should encourage and faclllLaLe Lhe developmenL of closed conLalnmenL aquaculLure operaLlons Lo reduce wasLe,
dlsease and paraslLe Lransfer Lo wlld flsh populaLlons." (8oundLable llnal 8eporL, page 22)
4
1here was parLlal supporL for a recommendaLlon LhaL Lhe provlnce commlsslon a deLalled comparlson of Lhe
economlc, soclal and envlronmenLal lmpacLs of closed conLalnmenL and open pen flsh farmlng Lo lnclude Lrue cosL
evaluaLlon" and addlLlonally for Lhe noLlon LhaL, (8oundLable, page 22)
10
aquacultuie sites, that Nova Scotia`s new iegulatoiy fiamewoik shoulu iegulate maiine-baseu fin-
fish aquacultuie by piohibiting it oi its expansion.
0ui conclusion is that the iegulatoiy fiamewoik shoulu not be piohibitoiy. 0ui ieasons aie as
follows:
The iisks associateu with this kinu of aquacultuie, while seiious, uo not waiiant a
piohibitoiy appioach pioviueu they aie otheiwise auuiesseu by iesponsible opeiation anu
by a iobust iegulatoiy fiamewoik;

The iisks anu impacts associateu can be significantly ieuuceu thiough effective iegulations;

Thiough inciemental uevelopment anu continuous impiovement to minimize negative
enviionmental anu social impact while maximizing benefits, maiine-baseu fin-fish
aquacultuie has the potential to make an impoitant contiibution to sustainable piospeiity
in Nova Scotia;

A uiveise inuustiy that incluues maiine-baseu opeiations anu lanu baseu facilities is moie
likely to be iesilient to futuie changes, incluuing changes in maiket conuitions anu climate
change;

A piohibitoiy appioach woulu apply a uiffeient stanuaiu to aquacultuie than is applieu to
othei inuustiies that pose compaiable levels of iisk anu that aie iegulateu unuei
iegulatoiy fiamewoiks that uo not piohibit but iegulate; anu

In the context of oui manuate to uevelop a iegulatoiy fiamewoik that integiates
enviionmental, social anu economic objectives anu the conclusions of the Ivany
Commission on the state of Nova Scotia's economy, the potential contiibution of maiine-
baseu fin-fish aquacultuie to Nova Scotia's economy calls foi a policy appioach that
auuiesses the iisks thiough iesponsible uevelopment anu iobust iegulation iathei than
piohibition.

At the same time, we concluue that the iegulatoiy fiamewoik foi aquacultuie neeus to be gieatly
stiengtheneu in pieventing fin-fish aquacultuie fiom taking place in coastal wateis that aie not
suitable foi that kinu of aquacultuie.
In ieaching these conclusions, we have not accepteu the aigument maue by some that lanu-baseu
closeu-containment systems aie not a viable option in salmon aquacultuie. Baseu on all we have
heaiu, we think this sectoi holus consiueiable piomise, anu the viability of such systems is still in
the piocess of being ueteimineu as maiket conuitions evolve anu innovative entiepieneuis woik to
iesponu to the giowing maiket uemanu foi sustainably-piouuceu salmon. In that context, we think
that Nova Scotia is foitunate that one of the oiganizations at the cutting euge of the innovation
cuive on lanu-baseu closeu containment systems, Sustainable Blue, has establisheu itself in Nova
11
Scotia. Assuming viable commeicial-scale closeu containment systems aie going to be uevelopeu
somewheie, it coulu be a tiemenuous benefit to Nova Scotia's futuie in aquacultuie if that weie to
happen in Nova Scotia. Foi that ieason, we think one of the objectives of Nova Scotia's effoits to
uevelop its aquacultuie inuustiy shoulu be to establish the Nova Scotia inuustiy as a leauei in the
uevelopment anu ueployment of closeu-containment systems foi salmon aquacultuie. In this
iegaiu, it is impoitant to note that Nova Scotia's capacity extenus beyonu Sustainable Blue. 0thei
opeiatois have useu oi aie using closeu-containment systems to iaise species othei than salmon
anu some of the eailiest woik uone anywheie in the woilu on application of closeu-containment
systems to salmon faiming was uone in Nova Scotia.
We uo not howevei accept the aigument that maiine-baseu fin-fish aquacultuie shoulu be
piohibiteu if anu when closeu-containment systems aie shown to be technically anu commeicially
viable. What we have heaiu leaus us to concluue that even if the viability of closeu-containment
options is establisheu, it will be a long-time if evei befoie they aie capable of piouucing the volume
of salmon cuiiently uemanueu by the maiket anu piouuceu by the maiine-baseu inuustiy.
Pioviueu Nova Scotia's maiine-baseu inuustiy is conuucteu iesponsibly subject to iobust
iegulation, we uo not think Nova Scotia shoulu limit itself to one kinu of salmon aquacultuie when
anu if the commeicial viability of lanu-baseu systems is establisheu. Insteau, we agiee with those
who submitteu to us that the ielationship between maiine-baseu anu lanu-baseu systems coulu be
economically syneigistic if Nova Scotia aimeu to be at the leauing euge of ueveloping closeu-
containment systems anu low-impact maiine-baseu salmon faiming. This woulu builu anu
ieinfoice Nova Scotia's bianu as a leauei in the sustainable faiming of salmon, whethei uone at sea
oi on lanu. In that woilu, Nova Scotia's closeu containment anu maiine-baseu faimeis might both
sell moie piouuct then they might otheiwise.
It is ciitical that we stiess the following point: oui conclusion that we shoulu not iecommenu a
peimanent moiatoiium assumes the auoption anu effective implementation of the iegulatoiy
fiamewoik we have outlineu in this iepoit.

P9[ +*#C2*13 H/%1(1 @3/--C2*13
0ui manuate was to uevelop a iegulatoiy fiamewoik foi the whole of aquacultuie, not just foi fin-
fish aquacultuie. This means oui manuate extenus to the shell-fish inuustiy, which incluues the
piouuceis of oysteis anu mussels. It also extenus to plant aquacultuie, wheie Nova Scotia is a
leauei laigely uue to the success of Acauian Seaplants. Bowevei, although we heaiu lots about fin-
fish aquacultuie anu a goou ueal about shell-fish aquacultuie, we heaiu veiy little about plant
aquacultuie.
Cuiiently, the legislative fiamewoik foi the iegulation of aquacultuie founu in the :&*.)*+
;(.&1%7(. 67) subjects fin-fish anu shell-fish aquacultuie to the same iegulatoiy fiamewoik. The
uiffeiences between the two bianches of the inuustiy, paiticulaily in the natuie anu level of iisk
each poses to the enviionment, is auuiesseu in the auministiation of the iegulatoiy fiamewoik
thiough the licensing piocess. The uiffeiences between the two kinus of aquacultuie aie ieflecteu
in the uiffeient teims anu conuitions that get wiitten into the licences foi each.
12
0ui piocess suggesteu that conceins about the enviionmental impact of aquacultuie aie laigely
focuseu on fin-fish aquacultuie. Noie bioauly, it suggesteu that opposition to giowth in
aquacultuie is concentiateu on fin-fish aquacultuie anu is much moie intense in ielation to fin-fish
aquacultuie than it is in ielation to shell-fish aquacultuie. In auuition, we heaiu positive things
about how shell-fish aquacultuie is peiceiveu much moie fiequently than we heaiu positive things
about the peiception of fin-fish aquacultuie.
At the same time, we heaiu similai conceins about how shell-fish anu fin-fish aquacultuie aie
iegulateu in ielation to the impact of aquacultuie on communities. Foi example, although the
conceins weie moie intensely anu consistently expiesseu ielative to fin-fish aquacultuie, we heaiu
conceins in communities close to both kinus of aquacultuie about inauequate tianspaiency about
pioposeu aquacultuie uevelopments; inauequate oppoitunities foi community paiticipation in the
iegulatoiy piocess; anu inauequate iesponse to community conceins about the impact of
aquacultuie on boating anu othei iecieational activities, fishing, anu the beauty of coastal wateis.
The iegulatoiy fiamewoik foi aquacultuie neeus to tieat fin-fish anu shell-fish aquacultuie
uiffeiently as iegaius theii iespective potential impacts on the enviionment. We also think,
howevei, that impiovements in the iegulatoiy fiamewoik ielative to the potential impact of
aquacultuie on communities, incluuing the oppoitunities the fiamewoik pioviues to citizens to be
infoimeu about anu to paiticipate in the iegulatoiy piocess shoulu in geneial be applicable to both
kinus of aquacultuie. Even theie howevei, some attention neeus to be given to the uiffeiences
between the two kinus of aquacultuie, incluuing the smallei scale of many shell-fish opeiations.

P9\ 4/5(-,$*&# ,#' @),-/ &2 K=/%,$*&#
A ielateu but uistinct issue is the inteiaction between iegulation anu the stiuctuie of the
aquacultuie inuustiy. 0n the one hanu, we heaiu that the salmon faiming inuustiy is incieasingly
uominateu by inuustiial-scale opeiations. This scale of opeiation can inciease the natuie anu scale
of enviionmental iisk associateu with salmon anu otheis kinus of fin-fish aquacultuie. It theiefoie
leaus to calls foi incieases in iegulatoiy oveisight anu foi tightei anu moie uemanuing iegulatoiy
iequiiements.
0n the othei hanu, we heaiu that heighteneu iegulatoiy iequiiements tenu to be much moie
buiuensome foi smallei than foi laigei opeiatois. The iesult of acioss-the-boaiu incieases in
iegulatoiy iequiiements uesigneu to auuiess the iisks associateu with laigei scale opeiations can
be to inciease the competitive auvantage that laige-scale opeiatois alieauy have ovei smallei-scale
opeiatois. It was pointeu out to us that this coulu be somewhat iionic in a Nova Scotia context
given the level of opposition that was expiesseu to us on the actions taken by the Nova Scotia to
encouiage laige companies such as Cooke Aquacultuie to expanu theii opeiations in Nova Scotia.
The iiony lies in the fact that although Cooke Aquacultuie is now the uominant playei in Nova
Scotia's fin-fish inuustiy, it is not the only playei. The otheis tenu to be the kinu of smallei-scale
inuigenous companies that many people say aie the kinus of companies that shoulu be suppoiteu.
13
The uynamic ielationship between opeiational scale anu iegulatoiy iesponses to opeiational scale
aie well-iecognizeu in the liteiatuie on iegulatoiy uesign anu auministiation. Paiticulai attention
is paiu to the pioblem that heighteneu iegulatoiy iequiiements piesent to small anu meuium sizeu
enteipiises (SNEs). Any goou iegulatoiy fiamewoik neeus to giapple with these uilemmas,
iecognizing that theie aie no simple oi compiehensive solutions. Laige-scale opeiatois must be
appiopiiately iegulateu. At the same time, iegulation must be feasible not only foi them but foi
smallei opeiatois.
Theie is a iange of options available to achieve anu maintain the necessaiy balance between these
objectives. 0ne is to ensuie that the iequiiements imposeu by the iegulatoiy fiamewoik on laige
anu small opeiatois aie piopoitionate to the iisks that the fiamewoik is intenueu to contiol. This
minimizes the extent to which the auuitional buiuen the fiamewoik places on small opeiatois is an
unnecessaiy auuitional buiuen. A seconu option is to ensuie the fiamewoik leaves iegulateu
oiganizations with ieasonable levels of flexibility as to how they implement oi meet the iegulatoiy
iequiiements. This gives smallei opeiatois the oppoitunity to auopt appioaches to
implementation that aie moie feasible foi them than the appioaches followeu by laigei
oiganizations. A thiiu option is foi the iegulatoiy agency, often in paitneiship with inuustiy
associations, to invest in piogiams that assist SNEs in meeting theii iegulatoiy obligations. This
iesponus uiiectly to the issues of capacity that often aie the coie baiiieis faceu by smallei
oiganizations when they aie faceu with highei iegulatoiy iequiiements.
Each of these options has infoimeu the uevelopment of oui pioposeu iegulatoiy fiamewoik foi
aquacultuie on Nova Scotia, anu neeus to infoim the moie uetaileu uesign anu implementation of
the iegulatoiy system foi aquacultuie.











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14

A iegulatoiy fiamewoik incluues but is much moie than the iules of iegulation. Regulation
encompasses iules (anu othei kinus of iegulatoiy stanuaius) but it also encompasses the policy
choices behinu those iules anu stanuaius anu the entiie piocess by which the iules anu stanuaiu
aie implementeu anu enfoiceu.
The effectiveness of a iegulatoiy fiamewoik theiefoie uepenus on many vaiiables anu factois in
auuition to the content of the iules anu stanuaius. 0ui piocess leaus us to concluue that the
cuiient iegulatoiy fiamewoik is not woiking optimally because of a numbei of factois that will not
be auuiesseu by changing the iules of aquacultuie in Nova Scotia. Although we think changes in the
iules aie also iequiieu, these changes will not be effective in piouucing the impiovement in
iegulation that we think is iequiieu unless these othei factois aie auuiesseu.

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The iegulation of aquacultuie in Nova Scotia ieflects an attituue within the piovincial goveinment
that neeus to change if iegulation is to become effective anu tiusteu foi being effective. The
attituue in question is one that assumes that the conceins helu by membeis of the public anu local
communities about the impact of the inuustiy, especially about the enviionmental impact of
maiine-baseu fin-fish aquacultuie, aie ovei-stateu, unsubstantiateu anu baseu on a not-in-my-
backyaiu synuiome. It is an attituue which is too quick to blame opposition to the inuustiy on
those complaining, anu which is not sufficiently ciitical of the inuustiy's iesponsibilities foi the
opposition it faces. In the iegulatoiy piocess, these attituues manifest themselves as iegulation
which is insufficiently iigoious anu tianspaient anu which often enus up being unueistanuably
peiceiveu as moie conceineu with uefenuing the inuustiy fiom its opponents than with keeping the
inuustiy accountable foi its peifoimance anu impact.
Within the inuustiy, we saw eviuence of a similai set of attituues at play. To be faii, we heaiu many
people fiom the inuustiy speak of the inuustiy's accountability foi the opposition it faces anu also
to the iole that the inuustiy must play in gaining anu maintaining public anu community suppoit.
But we also uetecteu a tenuency to poitiay opposition as illegitimate, in some cases because it came
fiom those who summei in Nova Scotia but uo not live heie yeai-iounu oi because it was peiceiveu
as being oichestiateu oi bank-iolleu by national anu inteinational enviionmental gioups that aie
ueuicateu to the uestiuction of the inuustiy foi iueological ieasons. Sometimes, it was suggesteu
to us that the uifficulty the inuustiy faces in getting new sites appioveu by iegulatois was the
ieason why the inuustiy has lost social licence, oveilooking the moie likely possibility that the
inuustiy's loss of social licence accounts foi the uifficulties the inuustiy incieasingly faces in a
iegulatoiy piocess that seems to us to be geaieu to suppoit the giowth of the inuustiy.
Fiom the community peispective, we of couise iecognize the iight of membeis of the public to holu
whatevei views they wish to holu about the inuustiy oi the iole of the goveinment in piomoting it
oi iegulating it. We aie paiticulaily awaie that many who spoke to us live close to aquacultuie
opeiations while we uo not, anu that foi many, fiustiation with the cuiient iegulatoiy piocess has
13
unueistanuably shapeu theii cuiient view of the inuustiy. Those comments maue, we aie left with
the view that the uemonization of the inuustiy we sometimes heaiu sometimes came close to
oveishauowing the veiy ieal pioblems that we heaiu about that the iegulatoiy fiamewoik must
cleaily auuiess.
Some of the calls foi iegulatoiy piotection that weie conveyeu to us weie uispiopoitionate to the
iisks poseu by aquacultuie anu to how compaiable levels of iisk cieateu by othei inuustiies aie
auuiesseu. We not only unueistanu the inability of iegulatois to meet those expectations, we also
question whethei it woulu be sensible public policy foi them to uo so given the level of iesouices
such an effoit woulu iequiie. We also must comment that although theie aie veiy ieal anu
legitimate conceins about the impact that ceitain kinus of aquacultuie may have on othei ways of
making a living, we question the unwillingness we sometimes heaiu to acknowleuge any value in
the wealth anu jobs cieateu by aquacultuie, an inuustiy that has been in the piovince foi at least 4u
yeais anu that cuiiently is woith almost $Su million uollais annually.
Sometimes, this unwillingness seemeu to ieflect the kinus of attituues to economic uevelopment
that the Ivany Commission concluueu aie woiking against Nova Scotia's veiy viability as a piovince.
It seems cleai to us that foi the benefit of all Nova Scotians, it will be ciitical that a new iegulatoiy
appioach to the inuustiy will be accepteu by those suspicious of the inuustiy as a fiesh stait, an
oppoitunity by goveinment anu inuustiy to establish constiuctive ielationships with local
communities anu othei useis of coastal wateis. While changes in attituue within goveinment anu
inuustiy aie a pieconuition foi piogiess, an openness to change among those who have felt uis-
enfianchiseu by the iegulatoiy piocess in the past will be a ciitical ingieuient to ieaching the goal
of ensuiing aquacultuie contiibutes to sustainable piospeiity, paiticulaily in iuial Nova Scotia.

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Social licence iefeis to the infoimal peimission society oi a segment of society, such as a local
community, uoes oi uoes not give to an inuustiy, an activity oi a pioject. The ielationship between
social licence anu foimal iegulation is complex. 0n the one hanu, effective iegulation can help to
cieate, ieinfoice anu sustain social licence. 0n the othei hanu, the piesence oi absence of social
licence can be one of the key ueteiminants of the effectiveness of iegulation.
Theie seems to be wiuespieau agieement that maiine-baseu fin-fish aquacultuie uoes not
cuiiently enjoy high social licence in Nova Scotia oi acioss Canaua. Faii oi unfaii, this ieflects a
peiception that the inuustiy is a significant pollutei of the maiine enviionment using piactices that
aie not sustainable foi ecosystems oi the health foi the fish that aie faimeu oi the wilu fish oi othei
aquatic life that comes into pioximity with "open-net pens", fiequently calleu "feeu lots" by theii
uetiactois.
In oui piocess we heaiu polaiizeu views on the question of social licence. Fiom an inuustiy
peispective, the message sometimes seemeu to be that social licence uepenueu on inuustiy anu
iegulatois staiing uown the unieasonable opposition anu woiking with those in society who aie
piepaieu to have an open minu anu to accept the facts. Fiom an oppositional peispective, we
16
sometimes weie flatly tolu that no amount of iegulation coulu solve the social licence pioblems of
an inheiently unsustainable inuustiy. But fiom both peispectives, we also heaiu many moie
nuanceu opinions that iecognizeu the vital contiibution that iegulation coulu make in helping the
inuustiy's social licence pioblem by helping the inuustiy avoiu oi fix the pioblems it has
encounteieu in the past.
Foi fin-fish aquacultuie to uevelop in Nova Scotia, the social licence pioblem will have to be
auuiesseu. If the uevelopment of fin-fish aquacultuie continues in the absence of impioveu social
licence theie is a ieal possibility that the social licence of aquacultuie in geneial may come into
uoubt. Alieauy, we saw some eviuence of that happening. 0ui piocess leaus us to the conclusion
that the social licence pioblem is ueepei than the ineffectiveness anu non-iesponsiveness of the
cuiient iegulatoiy fiamewoik. But it also leaus us to concluue that the social licence issue cannot
be auuiesseu unless the effectiveness of the iegulatoiy fiamewoik is significantly impioveu anu is
seen to be impioveu in visible anu tangible ways.
This uoes not mean auuitional levels anu layeis of iegulation anu oveisight foi the puipose of
showing an inciease in iegulation. Even if that appioach mitigateu the social licence gap, which is
unlikely, it woulu cause othei kinus of baiiieis to the health of the inuustiy. What it uoes mean, at a
minimum, is iegulation that ueals uiiectly anu iesponsively with the ieal anu legitimate issues that
the inuustiy must auuiess if it is to enjoy bettei social licence.
We think howevei that Nova Scotia shoulu aim highei than the minimum. 0ui manuate askeu us to
consiuei the iegulation of aquacultuie in light of the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5
67) anu the piioiity it places on uevelopment that is sustainable because it integiates economic,
social anu enviionmental aspiiations. In that context, we piopose below that one of the goals of the
new iegulatoiy fiamewoik shoulu be to contiibute to Nova Scotia's bianu foi sustainable
aquacultuie that piouuces the highest value piouucts foi the lowest possible enviionmental impact
while maximizing social value.


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All iegulatoiy fiamewoiks give uiscietion to the iegulatoi. In complex iegulatoiy fiamewoiks that
govein the conuuct of an inuustiy, it is typical foi the iegulatoi to be given consiueiable uiscietion
by the legislation that implements the fiamewoik. This is essential to the ability of iegulatois to
ueal with vaiiation between the natuie, scale anu context of the activities that aie iegulateu. It is
also essential to the ability of the iegulatoiy fiamewoik to evolve anu change to ieflect changing
conuitions uiiven by economics, technological innovation, new scientific knowleuge oi changing
social values.
Theie is howevei a balance to be stiuck between the extent of the ieliance on uiscietion anu the
laying out of the basic elements of the iegulatoiy fiamewoik in legislation, whethei it be in the
statute which is enacteu by the legislatuie oi the iegulations which get maue as authoiizeu by the
statute. Too much ieliance on uiscietion can mean that the iegulatoiy fiamewoik is little moie
than the sum total of the specific uecisions maue by the iegulatoi. This is a pioblem on multiple
17
levels. Regulatois aie pioviueu with little guiuance in how they aie to caiiy out theii woik.
Regulateu businesses can be unsuie of what is expecteu of them anu unceitain of when anu how
those expectations will change. The piotection pioviueu to the people anu the values the
iegulations aie intenueu to piotect can be unceitain anu vaiiable. Nost bioauly, theie can be a
concein that the fiamewoik is uelegating not just auministiative but law-making authoiity to
iegulatois without making them subject to the kinus of tianspaiency anu accountability geneially
applieu to law-making.
0ui conclusion is that the iegulatoiy fiamewoik cuiiently in place unuei the 8$.9(%$(. *"/ :&*.)*+
67) anu Regulations is too heavily uepenuent on iegulatoiy uiscietion. We believe that a numbei of
the conceins we heaiu fiom communities anu fiom inuustiy about the cuiient fiamewoik aie
aceibateu by the extent to which the fiamewoik opeiates almost entiiely thiough iegulatoiy
uiscietion. Foi example, community conceins about the content anu auequacy of the iules unuei
which aquacultuie opeiatois is unueistanuable given that those iules aie oveiwhelmingly founu in
the teims anu conuitions of each opeiatois lease anu licence. Similaily, inuustiy conceins about
the pieuictability anu uepenuability of iegulatoiy uecision-making is paitly a iesult of the open-
enueu natuie of the uiscietion the legislation gives to the Ninistei of Fisheiies anu Aquacultuie.
In the iegulatoiy fiamewoik we have pioposeu, iegulatoiy uiscietion woulu be limiteu in vaiious
iespects. It woulu also be subject to cleaiei anu moie specific legislative guiuance as to how it is to
be exeiciseu.


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Thioughout oui piocess, a iecuiiing theme was inauequacy of the iegulatoiy iesouices at the
uisposal of the Bepaitment of Fisheiies anu Aquacultuie to caiiy out effective iegulation.
Fiequently, it was pointeu out that the Bepaitment only hau a single boat at its uisposal anu that it
often uepenueu on opeiatois foi tianspoitation to anu fiom aquacultuie sites.
Anothei aspect of the capacity issue was the uepenuency of the Bepaitment on the BF0 foi the
science the Bepaitment neeus to unueistanu anu auuiess the issues that the iegulatois of
aquacultuie must auuiess if they aie to be "woilu class".
0ui uiscussions with iegulatois in othei juiisuictions seiveu to confiim the wiuespieau concein
about the Bepaitment's iegulatoiy capacity. These uiscussions confiimeu that it is not just
iegulatois in juiisuictions such as Noiway that have significantly moie iesouices at theii uisposal
but also neighbouiing juiisuictions like New Biunswick anu Newfounulanu anu Labiauoi. We weie
paiticulaily impiesseu by the level of commitment to builuing policy, science anu iegulatoiy
capacity we heaiu about in the lattei piovince, wheie theie seemeu to be a cleai unueistanuing
that a stiategy to suppoit significant giowth in the inuustiy woulu fail if it was not accompanieu
with piopoitionate giowth in the capacity of goveinment to iegulate a giowing inuustiy.
In uiscussions of iegulatoiy effectiveness, theie is tenuency to emphasize issues such as the ielative
meiits of uiffeient kinus of iegulation. Foi example, a typical uebate will be between a mouel of
18
iegulation that iequiies peifoimance oi outcomes (usually suppoiteu by inuustiy) anu a mouel of
iegulation that piesciibes the iules that inuustiy must follow anu stiesses the punishments
inuustiy will face when the iules aie bioken (often suppoiteu by enviionmentalists). While these
uebates aie veiy impoitant, it is equally impoitant to iecognize that both kinus of iegulation
uepenu foi theii effectiveness on the level of iesouices put into theii implementation. In fact, in the
acauemic liteiatuie on iegulatoiy uesign anu piactice, theie is giowing iecognition that auequate
iegulatoiy capacity is a founuational anu peihaps the founuational ueteiminant of iegulatoiy
effectiveness.
It follows that a ciitical component of a new iegulatoiy fiamewoik foi aquacultuie in Nova Scotia is
a significant inciease in the capacity of iegulatois to implement the fiamewoik. We aie not in a
position to quantify the scale of the incieaseu capacity iequiieu. But we can with confiuence say
significant incieaseu capacity is neeueu at least in the following aieas: in the numbei of
knowleugeable anu expeiienceu iegulatois in the fielu; in the equipment that is available to the
officeis in the fielu; in the capacity of the Bepaitment in the aiea of veteiinaiy meuicine anu fish
health anu welfaie moie geneially; anu in the access of the Bepaitment to scientific ieseaich
capacity.
0ui last comment in this iegaiu is that although the capacity builuing that is iequiieu will entail a
cost, it will also iepiesent an oppoitunity. Thiough oui piocess, we weie stiuck by the numbei anu
iange of expeits on aquacultuie uoing woilu-class woik in Atlantic Canaua. We weie also stiuck by
what we weie tolu by these expeits, that much of the available ieseaich on the impacts of
aquacultuie has been uone on othei paits of the woilu leaving many unansweieu questions about
its applicability to Atlantic Canaua anu to Nova Scotia in paiticulai. If Nova Scotia is seiious about
builuing a woilu-class iegulatoiy fiamewoik, it neeus to fill these knowleuge gaps. It can uo so by
ueveloping ueepei anu longei-teim collaboiations with the scientific community that is alieauy
piesent in the iegion. If it uiu so, it woulu make a majoi contiibution to builuing that base of
expeitise anu to ueiiving anothei layei of economic anu social benefit fiom the inuustiy. Noieovei,
the iesults of the collaboiation woulu unuoubteuly be ieseaich that woulu not only be of value to
iegulatois but to the inuustiy anu its capacity to make enviionmentally sustainable anu socially
valuable contiibutions to Nova Scotia's economy.

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We heaiu fiom a bioau iange of paiticipants in oui piocess about the compatibility (oi
incompatibility) of vaiious foims of aquacultuie with othei uses of public iesouices, paiticulaily in
coastal wateis. We heaiu conceins fiom inuustiy membeis who felt that piivate piopeity owneis
tieat coastal wateis as theii exclusive uomain, iefusing to shaie this public iesouice with the
inuustiy. We also heaiu fiom the aquacultuie inuustiy that theie aie many lanu-baseu thieats to
coastal wateis that also thieaten the aquacultuie inuustiy, such as nutiient iun-off fiom agiicultuie
opeiations, anu inauequate sewage tieatment.
We heaiu fiom some membeis of the fishing community that they uepenu on this public iesouice,
anu that they aie conceineu that aquacultuie may pose an unacceptable iisk to the inshoie fishing
19
inuustiy. We heaiu fiom touiism opeiatois that they iely on piistine coastal wateis to attiact
touiists to theii opeiations, anu that aquacultuie is a thieat to theii inuustiy.
0theis see oppoitunities foi collaboiation anu syneigies. We heaiu fiom some membeis of the
inshoie fishing inuustiy that they see oppoitunities to combine fishing anu aquacultuie as a way to
uiveisity oppoitunities in iuial communities. Similai comments weie maue by some touiism
opeiatois who saw mussel faims as touiist attiactions.
In some cases, the uiveigent views on the compatibility between coastal aquacultuie anu othei uses
of coastal wateis aie a iesult of scientific unceitainty about the impacts of the vaiious activities,
how they inteiact with each othei anu how they cumulatively affect natuial systems. In many
cases, howevei, compatibility is a mattei of mutual aujustment anu accommouation in the best
inteiest of all. This iequiies a willingness to engage with one anothei openly, anu to look foi
mutually acceptable solutions that ensuie compatibility anu maximize syneigies.
We weie fiequently ieminueu in oui piocess that the wateis on which aquacultuie is conuucteu aie
public wateis. We weie tolu that aquacultuie hau the effect of piivatizing the benefit of this public
iesouice by uepiiving otheis of its use, paiticulaily those who live in communities close to
aquacultuie opeiations. We weie also tolu that the lease payments anu licensing fees chaigeu to
aquacultuie businesses weie not piopoitionate to the value these businesses obtaineu fiom using
anu, in the view of many, uamaging a public iesouice.
The iegulatoiy fiamewoik we have pioposeu iesponus to this valiu peispectives in multiple ways.
It uoes so keeping in minu that coastal wateis uo not belong to those to whom they aie leaseu foi
aquacultuie oi to those who live in pioximity oi aie licenseu to fish in them. They belong to
eveiyone in Nova Scotia anu it is the iesponsibility of the goveinment to ensuie they aie useu anu
manageu foi the benefit of the people of Nova Scotia as a whole.

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The effectiveness of iegulation in aquacultuie is gieatly uepenuent on ieseaich that allows the
enviionmental anu socio-economic impacts to be unueistoou, mitigateu anu amelioiateu wheie
they aie negative anu accentuateu wheie they aie positive. In oui piocess, we heaiu quite uiffeient
views as to whethei the cuiient iegulatoiy fiamewoik was piopeily anu uefensibly giounueu on
what science anu othei bouies of knowleuge
S
say about the potential impacts of aquacultuie,
especially of maiine-baseu fin-fish aquacultuie. Questions weie fiequently askeu about the
capacity of the BFA to apply ieseaich eviuence in the iegulatoiy piocess. 0ften, the context foi
these questions was the peiception that the BF0 is uoing less aquacultuie ieseaich than it has

3
lor one, Lhe 8oundLable expressed quallfled supporL for Lhe recommendaLlon LhaL, Ml'kmaq LradlLlonal
knowledge should be used LhroughouL Lhe regulaLory process. rocesses should be puL ln place Lo ensure LhaL
research lssues are addressed Lhrough Ml'kmaq knowledge sLudles LhaL lnclude land and waLer use, culLural use
and Lools Lo ldenLlfy lndlcaLors." 1he 8oundLable recognlzed LhaL Lhls ls parL of a larger process of rlghLs and LreaLy
obllgaLlons. (8oundLable llnal 8eporL, page 18)
20
histoiically, making the piovincial iole in ieseaich all the moie impoitant.
6
A iecuiiing theme in
oui conveisations with ieseaicheis was that the ieseaich that is most neeueu is ieseaich on the
inteiaction of aquacultuie with the enviionment in Nova Scotia, which is uiffeient in impoitant
iespects fiom the enviionments in which a lot of the ieseaich on aquacultuie has been caiiieu out.
The iesult is that on a iange of science questions on which theie is a significant bouy of ieseaich,
the ieseaich has not been uone to confiim the applicability of that ieseaich to Nova Scotia.
We think the futuie effectiveness of the iegulation of aquacultuie in Nova Scotia will uepenu on an
inciease in the BFA's capacity to iuentify the questions on which it neeus ieseaich to be uone anu in
its capacity to make iegulatoiy uecisions on the basis of its own inuepenuent unueistanuing of the
ieseaich eviuence. In paiticulai, the BFA must take a moie pioactive iole in funuing oi otheiwise
enabling ieseaich to fill the gaps in the peei-ievieweu liteiatuie that aie paiticulaily ielevant to
impioving the iegulation of aquacultuie in Nova Scotia's paiticulai enviionmental context.
7

0ne of the aieas of ieseaich to be given piioiity shoulu be on the inteiaction between fin-fish
opeiations in coastal wateis anu lobstei. This is one of the compatibility issues of paiticulai
ielevance to Nova Scotia that is suffeiing fiom a lack of sufficient scientific infoimation. Nany
membeis of the inshoie fishing inuustiy expiesseu conceins about the impact of fin-fish
aquacultuie on lobstei. Conceins iange fiom uisplacement of inuiviuual fishei fiom theii
tiauitional lobstei fishing giounus, contamination of lobstei thiough feeu, meuication, pest contiol
piouucts, anu chemicals useu in aquacultuie opeiations, to the effect of benthic contamination on
the abunuance of lobstei in a given aiea.
Theie aie some peei ievieweu papeis that consiuei these issues fiom a social science peispective,
assessing when anu how the two inuustiies have founu ways to co-exist in haimony in New
Biunswick, foi example (Walteis, 2uu7, Wibei, 2u12). The only stuuy we have been maue awaie of,
howevei, that consiueis the biophysical impact of fin-fish aquacultuie on lobstei is a lobstei-tiap
suivey caiiieu out by Louchs anu Smith (2u14). The stuuy tiacks lobstei tiap iesults fiom local
fisheimen in the Poit Nouton aiea uuiing vaiious phases of a fin-fish opeiation in the bay. The
stuuy concluues that the numbei of lobstei in the vicinity of the fin-fish opeiation uecieaseu uuiing
the giow-out peiiou, anu incieaseu uuiing the fallowing peiiou.
We have ieceiveu many submissions on this stuuy, both fiom scientists who have ievieweu the
stuuy anu fiom stakeholueis who have views on what action shoulu be taken as a iesult of this
stuuy. Some of the scientists who ievieweu the stuuy aie suppoitive anu view it as a cieuible stuuy,
while otheis ask seiious questions about the ieliability of the uata, anu how much weight can be
given to a single stuuy, the iesults of which have not been publisheu in a peei ievieweu jouinal.
Some stakeholueis have askeu us to uismiss the stuuy outiight, while otheis view this as a smoking
gun that waiiants shutting uown fin-fish aquacultuie in coastal wateis.

6
1he represenLaLlves of Lhe ulC we meL wlLh sLaLed LhaL Lhls percepLlon was a mlsLaken one.
7
1he 8oundLable gave parLlal supporL Lo a recommendaLlon Lo uevelop a process Lo pose clear research
quesLlons Lo supporL susLalnable managemenL. Make quesLlons avallable Lo gulde research by sLudenLs."
(8oundLable llnal 8eporL, page 19)
21
In oui view, the stuuy iaises questions about the inteiaction between fin-fish aquacultuie anu
lobstei populations that cannot be ignoieu. They aie questions that aie paiticulaily impoitant in
Nova Scotia wheie the lobstei fisheiy is vital to the economy of coastal communities anu the
piovince moie bioauly. The fact that consiueiable woik is left to be uone by the scientific
community befoie we will have cleai answeis to these questions is not a ieason foi inaction but
iathei foi action that will ensuie this woik is unueitaken. The Fiienus of Poit Nouton Bay have
uone tiemenuous woik to tiy to fill infoimation gaps that aie of significant geneial inteiest anu it is
ciitical that theii woik leau to fuithei ieseaich in this aiea. The BFA, with oi without suppoit fiom
the BF0, shoulu act to piomote this ieseaich anu to suppoit those who aie qualifieu to unueitake it.
0f couise, any iegulatoiy system has to function in the face of unceitainty while ieseaich to ieuuce
the unceitainty is unueiway. In the case of the potential impact of aquacultuie on lobstei anu in
similai cases of unceitainty,
8
oui iecommenueu appioach is that the BFA shoulu:
Iuentify oppoitunities to ieuuce oi eliminate the souice of the iisk, wheie this can be
ieasonably be uone thiough changes in the opeiation of fin-fish aquacultuie (foi example,
as set out elsewheie in the iepoit, by eliminating the use of chemical anti-fouling agents)
Wheie iisks cannot be ieauily eliminateu, pioceeu with a cleai unueistanuing that theie is
an unknown iisk associateu with the opeiation, anu make the quantification of the iisk a
piioiity thiough specific monitoiing anu ieseaich effoits.
Ensuie that the scale of uevelopment anu iegulatoiy oveisight aie in line with the iisk
involveu, by ensuiing inciemental uevelopment anu by ietaining the ability to aujust to new
infoimation expecteu fiom the auuitional monitoiing anu ieseaich.

W9] 4/5*&#,- :&&=/%,$*&#
We heaiu about iegional coopeiation fiom a numbei of the iegulatois we met with fiom New
Biunswick, Piince Euwaiu Islanu anu Newfounulanu. The existing Regional N00 is cleaily a step in
the iight uiiections in this iegaiu. It is impoitant to note, howevei, that theie aie likely to be limits
to iegional coopeiation. Piince Euwaiu Islanu, foi example, has a veiy uiffeient iegulatoiy system
anu a uiffeiently stiuctuieu inuustiy that opeiates in uiffeient biophysical conuitions. It is not
suipiising theiefoie that the inuustiy anu its iegulation has uevelopeu uiffeiently in PEI. New
Biunswick's inuustiy is much moie geogiaphically concentiateu than Nova Scotia's, is peihaps less
uiveise anu is opeiating at a laigei scale than in Nova Scotia. Newfounulanu's inuustiy is also quite
concentiateu geogiaphically, is uealing with veiy uiffeient biophysical conuitions anu is fai
iemoveu fiom Nova Scotia, making coopeiation in ceitain aieas moie uifficult.

8
1he 8oundLable expressed quallfled supporL for a recommendaLlon Lo supporL evldence-based regulaLory
declslon-maklng" wlLh conLlnulng research supporLed boLh dlrecLly by Lhe rovlnce and lndusLry, and Lhrough
federal-provlnclal parLnershlps." Areas of research ldenLlfled lnclude Lhe lmpacLs of aquaculLure on lobsLer, Lhe
lmpacLs of escaped salmon and of lSA on wlld sLocks, and Lhe lmpacLs of sea llce. 1he 8oundLable noLed LhaL
research should noL be llmlLed Lo Lhese areas and addlLlonally LargeLed knowledge gaps ldenLlfled by Lhe
knowledge 8osLer. (8oundLable llnal 8eporL, page 19)
22
We heaiu about the impeiative of impioveu iegional coopeiation fiom feueial iegulatois. Theie is
concein within CFIA, foi example, that the capacity of any one juiisuiction in Atlantic Canaua to
piopeily iesponu to a uisease outbieak is inauequate, anu builuing that capacity in each piovince
may be piohibitively expensive given the size of the inuustiy. This issue is exploieu in moie uetail
below, but iegional coopeiation in this aiea cleaily seems waiianteu.
In oui view, iegional coopeiation moie geneially is an impoitant consiueiation to enhance the
iegulatoiy piocess in all Atlantic Piovinces.
9
Bowevei, it shoulu not uiive the uesign anu
implementation of the iegulatoiy piocess in Nova Scotia. We have iecommenueu a paiticulai
appioach to the iegulation of aquacultuie foi Nova Scotia that is baseu on oui assessment of
biophysical, social anu economic conuitions in Nova Scotia, piovincial piioiities as expiesseu
thiough the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67) anu the 0ne Nova Scotia iepoit that
may not have the same application oi iesonance in othei piovinces.
Nova Scotia shoulu look foi oppoitunities to haimonize wheie theie aie common inteiests, anu
puisue its own couise wheie inteiests anu piioiities uiveige. Noie bioauly, it shoulu look foi
coopeiation oppoitunities as well as haimonization oppoitunities. Among the aieas wheie
iegional coopeiation woulu seem paiticulaily ciitical woulu be uisease contiol, piouuction of feeu,
anu piocessing. Theie aie oppoitunities foi iegional coopeiation in iegulatoiy iequiiements,
bianuing anu maiketing, but this woulu be contingent on othei piovinces embiacing the appioach
we have iecommenueu in this iepoit.

W9^ :&00*$0/#$
The manuating of a compiehensive ieview of the iegulation of aquacultuie anu the establishment
of this Panel to iecommenu a new iegulatoiy fiamewoik iepiesenteu a commitment on the pait of
the BFA anu the piovincial goveinment moie bioauly to significantly impiove the iegulation of
aquacultuie in Nova Scotia. As a Panel, we weie manuateu to iecommenu a "woilu class"
iegulatoiy fiamewoik, uiawing on the iueas in the Enviionmental uoals anu Sustainable Piospeiity
anu fiom the example of leauing juiisuictions in the iegulation of aquacultuie. We weie specifically
manuateu to conuuct an open anu tianspaient piocess.
0ui impiession was that in geneial, people who paiticipateu in oui piocess appieciate the
oppoitunity the BFA hau cieateu foi an open, tianspaient, inuepenuent anu funuamental ieview of
the iegulatoiy system. Theie was howevei, a goou ueal of scepticism expiesseu as to whethei oui
woik woulu be one moie iepoit left to gathei uust once the focus on impioving the iegulation of
aquacultuie uissipateu aftei oui piocess hau iun its couise. Some even suggesteu that the
motivation of goveinment in establishing the Panel was not ieally to impiove the iegulation of
aquacultuie but to uiffuse the opposition to the expansion of the maiine-baseu fin-fish inuustiy.

9
1here was quallfled supporL from Lhe 8oundLable for Lhe recommendaLlon LhaL, 1he regulaLory framework
should deflne Lhe roles and responslblllLles for Lhe rovlnce, federal governmenL, llrsL naLlons, Lhe aquaculLure
lndusLry, communlLles and oLher parLles dlrecLly lmpacLed." (8oundLable llnal 8eporL, page 10)
23
It will be ciitical that the commitment to impioving iegulation of the aquacultuie inuustiy that was
exhibiteu in the cieation anu manuating of the Panel be maintaineu as the issue becomes the
implementation of the fiamewoik we have pioposeu. uoou iegulation obviously uepenus on the
uesign oi aichitectuie of the iegulatoiy fiamewoik but it uepenus equally on the uiligence,
commitment anu effoit with which it is implementeu anu opeiateu on a continuing basis.
We have maue a numbei of iecommenuations that will help to ensuie that the commitment anu the
momentum foi impiovement is maintaineu thiough the piocess of implementation. Foi example,
we have calleu foi a new cultuie of iegulatoiy openness anu tianspaiency that will, if auopteu, help
to keep the BFA accountable foi acting on oui iecommenuations oi foi explaining why oui
iecommenuations have not been auopteu oi effectively implementeu. We have also iecommenueu
the cieation of an ongoing Regulatoiy Auvisoiy Committee both to monitoi the implementation of
the pioposeu fiamewoik anu to contiibute to its uevelopment anu implementation on a continuing
basis. We have also iecommenueu the cieation of a foimalizeu mechanism thiough which the BFA
woulu access the knowleuge anu ieseaich capacity of the bioauei knowleuge community outsiue of
goveinment to ensuie the uevelopment anu implementation of the fiamewoik is eviuence-baseu.
In the enu howevei, the ciucial question will be whethei the BFA anu its leaueiship iemain
committeu to the ciucial impoitance of impioveu iegulation thiough the cieation of a new
iegulatoiy fiamewoik. The bioauei anu equally impoitant question will be whethei the BFA is
suppoiteu in moving foiwaiu with the implementation of the fiamewoik by the bioauei
goveinment, incluuing but not only with the iesouices that effective implementation will uemanu.












24
Y :&,1$,- ;-,##*#5

We weie askeu by some paiticipants in oui piocess to iecommenu an integiateu coastal planning
piocess as a necessaiy context foi making siting uecisions foi aquacultuie opeiations in coastal
wateis.
1u
Recommenuations foi integiateu coastal planning anu foi integiateu coastal management
have been maue befoie, incluuing by the }oint Review Panel foi the Whites Point Quaiiy pioject in
Bigby Neck. 0thei paiticipants weie stiongly opposeu to linking the iegulatoiy system foi
aquacultuie to coastal planning. The main concein was that compiehensive anu integiateu
planning piocesses can take a long time. A numbei of paiticipants in oui piocess hau pievious
expeiience with the Eastein Scotian Shelf Integiateu Nanagement (ESSIN) piocess, anu expiesseu
fiustiation about the effoit anu time involveu, anu the fact that in the enu, the iesults weie not
implementeu.
Cleaily, an up to uate integiateu coastal plan foi Nova Scotia that compiehensively consiueieu
biophysical, social anu economic factois anu incluueu a plan foi the most effective long teim use
anu piotection of the coastal zone woulu be a valuable tool foi the iegulation of aquacultuie. It
woulu be valuable foi piopei site selection, anu foi consiueiing how aquacultuie fits with cuiient
anu potential futuie uses of the coastal aiea in question.
We have theiefoie concluueu that an integiateu coastal plan foi Nova Scotia woulu be a veiy useful
tool that coulu uo much to impiove the efficiency, effectiveness anu faiiness of the iegulatoiy
piocess. At the same time, we aie not in a position to ueteimine what time anu iesouices woulu be
neeueu to complete such a piocess successfully, paiticulaily given that it woulu iueally have the
suppoit of all levels of goveinment. While a coastal planning piocess woulu be veiy helpful to the
iegulatoiy piocess, we cannot pieuict whethei oi when such a piocess woulu yielu iesults, oi what
the content of such a planning piocess woulu be. We have theiefoie ueciueu to uesign the
iegulatoiy fiamewoik foi aquacultuie in the absence of a coastal plan. If such a plan is uevelopeu
in the futuie,
11
ceitain aspects of the iegulatoiy piocess coulu be significantly stieamlineu.
Because we aie assuming that theie will not be a coastal plan in place foi the foieseeable futuie, we
have iuentifieu othei ways foi iegulatois to ueteimine how aquacultuie fits with othei cuiient anu

10
1here was parLlal supporL from Lhe 8oundLable for a recommendaLlon LhaL, 1he provlnce LogeLher wlLh federal
parLners should, wlLhln a reasonable perlod of Llme, develop an overall coasLal plannlng process Lo address Lhe
locaLlon of aquaculLure operaLlons ln Lhe conLexL of envlronmenLal sulLablllLy and oLher marlne resource uses."
1hls recommendaLlon was vlgorously dlscussed" and only recelved parLlal supporL by Lhe narrowesL of marglns".
A furLher recommendaLlon was glven quallfled supporL ln response LhaL, lmprovemenLs Lo Lhe aquaculLure
regulaLory sysLem should proceed ln a Llmely fashlon, lndependenL of progress made wlLh developlng a coasLal
plannlng framework." (8oundLable llnal 8eporL, page 12)
11
1he 8oundLable gave parLlal supporL Lo a recommendaLlon LhaL, 1he 8ras d'Cr Lakes would be a sulLable
locaLlon for a plloL coasLal plannlng pro[ecL ln consulLaLlon wlLh llrsL naLlons. 1he exlsLlng 8ras d'Cr Lakes
CollaboraLlve LnvlronmenLal lannlng lnlLlaLlve (CLl) could provlde valuable lnformaLlon and lnpuL lnLo Lhls
process." 1here may be oLher areas sulLable for plloL coasLal plannlng pro[ecLs as well, such as Lhe 8ay of lundy,
and Lhere may be oLher ways Lo move coasLal plannlng forward. (8oundLable llnal 8eporL, page 13)
23
futuie uses of a given coastal aiea.
12
Among such piocesses aie the stiategic assessment piocess
iecommenueu foi ueteimining gieen, yellow anu ieu aieas foi the siting of aquacultuie opeiations.
0thei piocesses that can help fill the gap left by the absence of a coastal plan incluue the Regulatoiy
Auvisoiy Committee we piopose anu the potential ievival of Regional Aquacultuie Bevelopment
Auvisoiy Committees pieviously suppoiteu by the feueial Bepaitment of Fisheiies anu 0ceans.



















12
1he 8oundLable puL forward a recommendaLlon as an alLernaLlve Lo a more comprehenslve coasLal plannlng
approach, lendlng parLlal supporL Lo a proposal LhaL, 1he rovlnce should collaLe exlsLlng coasLal plannlng
lnformaLlon and make lL publlcly avallable Lo asslsL wlLh declslon-maklng regardlng aquaculLure slLlng." Also of
noLe, durlng 8oundLable dlscusslons, lL was suggesLed LhaL much of Lhls lnformaLlon already exlsLs, whlle concerns
were ralsed abouL Lhe feaslblllLy of keeplng publlcly avallable lnvenLorles up Lo daLe. (8oundLable llnal 8eporL,
page 13)
26
Z <&,-1

Regulation shoulu have cleai goals. This helps to ensuie it is conuucteu with a shaieu
unueistanuing of its objectives. It helps to ensuie that each element of the iegulatoiy fiamewoik is
uesigneu anu auministeieu to contiibute to the accomplishment of the fiamewoik's oveiall goals.
It pioviues guiuance to iegulatois as to how they shoulu exeicise theii uiscietion. It gives business
a bettei unueistanuing of what the iegulatoiy piocess is tiying to accomplish anu the oppoitunity
to integiate those objectives into how business is conuucteu. It helps to ensuie that membeis of the
public have a cleai unueistanuing of what they can expect of iegulatois anu business, which in tuin
enables them to bettei contiibute to the iegulatoiy piocess.
In all of these ways, cleai goals can help to ensuie that the iesouices foi making, auministeiing anu
complying with iegulations aie optimally useu. In auuition, cleai goals facilitate the evaluation of
the effectiveness of iegulation. Evaluation in tuin is ciitical to impiovement of iegulation ovei
time.
The :&*.)*+ ;(.&1%7(. 67) cuiiently contains a list of goals oi objectives. This appioach shoulu be
ietaineu. The list of goals shoulu howevei be explicitly connecteu to the iegulation of aquacultuie.
In auuition, the list of goals shoulu be moie compiehensive anu incluue a numbei of goals that aie
moie specific than the goals cuiiently founu in the Act. The goals of the iegulation of aquacultuie
shoulu be stateu to incluue:
1 Ensuiing aquacultuie is conuucteu unuei conuitions anu in accoiuance with contiols
that will piotect the enviionment by pieventing significant haim to the enviionment oi
to the continuing availability in the shoit, meuium anu longei teim of unimpaiieu
enviionmental seivices to aquacultuie anu to othei useis of those enviionmental
seivices;
1S


2 Ensuiing equity, faiiness anu compatibility in access to anu utilization of public watei
iesouices in the coastal zone by aquacultuie anu othei useis of the coastal zone;

S Ensuiing the iegulation of aquacultuie contiibutes to the piouuctive uevelopment of
Nova Scotia's coastal iesouices in the uiiection of low impact foi high value;

13
1hls goal ls closely relaLed Lo Lwo of Lhe Culdlng rlnclples" suggesLed by Lhe 8oundLable for Lhe regulaLory
framework, LhaL lL, Lnsure Lhe malnLenance of long Lerm ecosysLem healLh ln Lhe areas where aquaculLure Lakes
place" and LhaL lL, Lnsure LhaL Lhe neL envlronmenLal lmpacL of an aquaculLure operaLlon, from sLarL-up Lo
decommlsslonlng, does noL exceed Lhe ecologlcal carrylng capaclLy of lLs locaLlon". 8oLh recelved unanlmous
supporL from Lhe 8oundLable. We agree wlLh boLh of Lhese recommendaLlons buL Lhlnk Lhey are beLLer
undersLood as dlfferenL ways of expresslng a crlLlcal goal of Lhe framework raLher Lhan as one of Lhe prlnclples Lo
be followed ln Lhe pursulL of LhaL and oLher goals. ln pracLlce, Lhls goal mlghL be achleved by followlng
recommendaLlons such as Lhe followlng one from Lhe 8oundLable: 1he regulaLory framework should ensure LhaL
Lhe use of anLlbloLlcs, LherapeuLanLs and anLl-foulanLs are conLrolled Lo mlnlmlze ecosysLem lmpacLs and ensure
LhaL non-LargeL specles are noL affecLed. 1he use of pesLlcldes Lo LreaL sea llce should be prohlblLed." 1hls
recommendaLlon recelved quallfled (here, close Lo unanlmous) supporL from Lhe 8oundLable. (8oundLable llnal
8eporL, pages 6 and 24 respecLlvely)
27

4 Ensuiing aquacultuie is uevelopeu anu conuucteu to ensuie its compatibility with the
well-being anu piospeiity of othei sectois of the Nova Scotia economy, incluuing the
lobstei fisheiy, the touiism inuustiy anu the fly-fishing inuustiy;
14


S Ensuiing the people of Nova Scotia, incluuing the iesiuents of communities in pioximity
to aquacultuie sites, have oppoitunities to ieceive uiiect anu inuiiect economic anu
social benefits fiom the uevelopment anu opeiation of the aquacultuie inuustiy that aie
piopoitionate to the value of the public watei iesouices anu the enviionmental seivices
that aie utilizeu by the aquacultuie inuustiy;
1S


6 Ensuiing aquacultuie is uevelopeu anu conuucteu with uue iegaiu to the health, well-
being anu iecoveiy of the wilu Atlantic salmon population in Nova Scotia iiveis as well
as any enuangeieu species that may be affecteu by aquacultuie opeiations;

7 Ensuiing membeis of the public have meaningful oppoitunity to be infoimeu about anu
to paiticipate in the iegulatoiy piocess, incluuing eaily notification of pioposeu
aquacultuie opeiations, pioposeu expansions of existing sites anu pioposeu tiansfei of
owneiship of existing sites;
16


8 Ensuiing the iegulation of aquacultuie is attentive to the uevelopmental plans,
objectives, neeus anu piioiities of local communities;

9 Ensuiing the iegulation of aquacultuie suppoits the effoits of the Nova Scotia
aquacultuie inuustiy to uevelop anu giow thiough innovation anu thiough the auoption
of aquacultuie anu business piactices that combine business success with highei
enviionmental peifoimance;
17


1u Ensuiing that iegulations aie achievable, contain incentives foi compliance anu can be
enfoiceu.
18



14
1he 8oundLable proposed a Culdlng rlnclple" wlLh unanlmous supporL LhaL Lhe regulaLory framework should
revenL or mlnlmlze negaLlve lmpacLs on oLher marlne resource lndusLrles and users". Agaln, we agree wlLh Lhe
recommendaLlon buL Lhlnk lL works beLLer as a goal of Lhe framework raLher Lhan as one of lLs guldlng prlnclples.
(8oundLable llnal 8eporL, page 7)
13
1hls proposed goal ls roughly slmllar Lo Lhe Culdlng rlnclple" suggesLed by Lhe 8oundLable LhaL Lhe regulaLory
framework uellver neL beneflLs, whlch can lnclude envlronmenLal, economlc or soclal beneflLs, Lo nova ScoLla".
(8oundLable llnal 8eporL, page 7)
16
1he 8oundLable gave quallfled supporL Lo a slmllar Culdlng rlnclple", whlch sLaLed: lnclude publlc lnpuL and
local knowledge LhroughouL Lhe regulaLory process". (8oundLable llnal 8eporL, page 7)
17
A Culdlng rlnclple" wlLh some shared elemenLs recelved parLlal supporL from Lhe 8oundLable. (8oundLable
llnal 8eporL, page 8)
18
1hls was proposed by Lhe 8oundLable as a Culdlng rlnclple" wlLh unanlmous supporL. We Lhlnk lL flLs beLLer
here as one of Lhe goals of Lhe regulaLory framework. (8oundLable llnal 8eporL, page 7)
28
11 Ensuiing the iegulation of aquacultuie in Nova Scotia is efficient, timely, uepenuable,
pieuictable anu affoiuable foi both taxpayeis anu businesses.

Noie geneially, the unueilying concept of the iegulatoiy fiamewoik shoulu be that stiong
iegulations make foi a stiongei inuustiy (Ambec, 2u11: Poitei Bypothesis at 2u). Beie, it is
ielevant to ieiteiate oui view that what the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67)
shoulu be inteipieteu anu applieu to mean foi aquacultuie is that the inuustiy shoulu be iegulateu
on the basis that Nova Scotia's objective is to host an inuustiy which cieates the highest value
piouucts with the lowest possible enviionmental impact, while maximizing social value. Put
somewhat uiffeiently in the context of oui manuate to iecommenu a woilu class iegulatoiy
fiamewoik, the ultimate iegulatoiy goal is foi the aquacultuie inuustiy in NS to become woilu
leaueis in low impact aquacultuie, anu to maiket this success so that NS expoits can achieve the
highest possible value in the maiket place.
These objectives shoulu apply to all foims of aquacultuie, anu they shoulu guiue the uevelopment,
application anu evolution of the iegulatoiy system uevelopeu foi the inuustiy.


















29
[ <(*'*#5 ;%*#)*=-/1

In auuition to claiity on goals, a iegulatoiy fiamewoik shoulu be cleai on the piinciples that have
guiueu the uevelopment of the fiamewoik anu that will guiue its continuing evolution anu its
auministiation. Such piinciples uo not supeiseue the specific content of the iegulations. They uo
not give iegulatois the authoiity to ignoie specific iegulatoiy iequiiements. Rathei, they foim the
backuiop to the opeiation of the iegulatoiy fiamewoik anu infoim how it is inteipieteu anu
applieu to specific situations wheie theie is ioom foi legitimate questions as to how it shoulu be
inteipieteu anu applieu.
The ielationship between guiuing piinciples anu goals can be a souice of confusion. 0ne of the goals
of a iegulatoiy fiamewoik can be that it opeiate in accoiuance with its guiuing piinciples.
Conveisely, the guiuing piinciples can be stateu to incluue attiibutes that can also be stateu as
goals. 0ui appioach is to think of the goals of the fiamewoik as the high-level outcomes that the
fiamewoik is uesigneu anu auministeieu to achieve. The guiuing piinciples aie the attiibutes the
iegulatoiy piocess shoulu live up to while those high-level outcomes aie being puisueu.
The liteiatuie uiffeientiates between oveiaiching piinciples that woulu be ielevant to iegulation in
geneial (incluuing aquacultuie) anu piinciples that aie specific to iegulation in a paiticulai sectoi
(like aquacultuie). The list that follows is a combination of these two kinus of piinciples. In geneial
teims, geneiic piinciples ielate to issues of iegulatoiy uesign anu auministiation that aiise in all oi
most iegulatoiy contexts wheieas piinciples specific to a sectoi ielate moie closely to the
objectives of iegulation in that sectoi.
Theie aie many lists of "goou iegulation piinciples" available fiom othei settings oi juiisuictions.
Although theie is consiueiable oveilap between them, theie is no list that is univeisally accepteu as
the iight oi best list. The list that follows incluues the piinciples that appeai on most oi at least a
numbei of the lists plus a numbei of the guiuing piinciples pioposeu to us by the Rounutable.
Reflecting on the liteiatuie on iegulatoiy piinciples, the expeiience of othei juiisuictions (incluuing
Nova Scotia) the auvice we have ieceiveu fiom the Rounutable anu oui ieflections on all that we
have heaiu in oui consultations with Nova Scotians, we have concluueu that the iegulatoiy
fiamewoik foi aquacultuie in Nova Scotia shoulu be baseu on the following piinciples:
a. .22/)$*H/#/11 - The founuational iegulatoiy piinciple is effectiveness. Effectiveness
in seiving iegulatoiy objectives must be the coie consiueiation in the uesign,
implementation anu enfoicement of a iegulatoiy fiamewoik. Claiity on the bioau
objectives of the fiamewoik as a whole anu the moie specific objectives of specific
elements of the iegulatoiy fiamewoik is theiefoie ciitical.
19



19
1he 8oundLable gave unanlmous supporL Lo several relaLed Culdlng rlnclples", lncludlng numerlcal
8equlremenLs lncluded ln lndlcaLors, sLandards and Lhresholds should have clear [usLlflcaLlon" and Lnsure LhaL
regulaLlons are achlevable, conLaln lncenLlves for compllance and can be enforced." 1here was also quallfled
supporL Lo lmprove regulaLory cerLalnLy." (8oundLable llnal 8eporL, page 7)
30
b. K=/##/11 - This piinciple is often incluueu with tianspaiency. We think it shoulu
be sepaiately iuentifieu because it emphasizes that the iegulatoiy piocess shoulu
not just be tianspaient to those outsiue of it but paiticipatoiy anu inclusive of those
who have inteiests that the iegulatoiy piocess coulu affect. At the Rounutable,
theie was "qualifieu" suppoit foi a "uuiuing Piinciple" to "Incluue public input anu
local knowleuge thioughout the iegulatoiy piocess".
2u


c. J%,#1=,%/#)6 - Tianspaiency is one of the piinciples that appeais on most lists of
"iegulatoiy piinciples". The Rounutable concluueu that one of the "uuiuing
Piinciples" of the iegulatoiy fiamewoik shoulu be to "Pioviue foi tianspaiency
thioughout the iegulatoiy cycle".
21
The peiceiveu lack of tianspaiency in how
aquacultuie has been iegulateu to uate was one of the conceins iaiseu most
consistently uuiing oui consultations.

u. D))&(#$,U*-*$6 - ueneially, this piinciple calls foi accountability fiom iegulatois,
both to those uiiectly affecteu by theii uecisions anu to the bioauei public that pays
foi iegulation anu eithei uoes oi uoes benefit fiom it uepenuing on how it is
implementeu. 0ne aspect of this piinciple is theie be claiity (tianspaiency) on who
makes what uecisions anu on what basis. Anothei aspects calls foi accountability on
the oveiall success of the iegulatoiy piocess in achieving piogiess towaius its goals
anu the costs to goveinment anu business foi that success. So unueistoou, this
piinciples oveilaps with one of the "uuiuing Piinciples" suggesteu by the
Rounutable, that theie be "cleai ioles, iesponsibilities anu accountability".
22


e. ;%&=&%$*&#,-*$6 - Regulation shoulu be piopoitionate to the iisks it seeks to
contiol. Bighei iisks shoulu be moie heavily anu aggiessively iegulateu wheieas
lowei iisks shoulu attiact less attention anu effoit, even though they may be seiious
to those who may be affecteu by them.
2S
The iuea is to calibiate iegulatoiy effoit to
the ielative seiiousness of iisk to pievent ovei-iegulation of smallei (less seiious)
iisks anu unuei-iegulation of highei (moie seiious) iisks. Piopoitionality is also
conceineu with ensuiing that the costs imposeu by iegulation on business aie
piopoitionate to the seiiousness of the iisks that iegulation is contiolling.
24


f. "#$/5%,$*&# - The Rounutable pioposeu the iegulatoiy fiamewoik shoulu
iecognize that "the health of the economy, the enviionment anu the people aie

20
See 8oundLable llnal 8eporL, page 7.
21
1hls Culdlng rlnclple" recelved unanlmous supporL from Lhe 8oundLable. (8oundLable llnal 8eporL, page 7)
22
1hls Culdlng rlnclple" recelved unanlmous supporL from Lhe 8oundLable. (8oundLable llnal 8eporL, page 7)
23
1he level or severlLy of a rlsk (harm) ls a funcLlon of Lhe probablllLy of lL occurrlng Llmes Lhe poLenLlal lmpacL of
Lhe rlsk ln Lhe evenL lL occurs.
24
Two of the "uuiuing Piinciples" which ieceiveu qualifieu suppoit at the Rounutable aie ielateu to
piopoitionality. The fiist is a piinciple to "Avoiu unuue iegulatoiy buiuen on smallei opeiations while
staying within the limits of enviionmental caiiying capacity". The seconu is the piinciple to "Auuiess issues
of iegulatoiy equity between aquacultuie anu othei inuustiies". (Rounutable Final Repoit, page 7)
31
inteiconnecteu" as one of its "uuiuing Piinciples". We agiee. Builuing such a
piinciple into the iegulatoiy fiamewoik foi aquacultuie is consistent with oui
manuate, which was to make iecommenuations, "in light of the best long-teim
enviionmental, social anu economic inteiests of the piovince, in accoiuance with
piioiities, piinciples, anu inteiests as aiticulateu in ielevant Nova Scotia legislation,
incluuing the Enviionmental uoals anu Sustainable Piospeiity Act". The objective
of this legislation is to guiue public policy anu enviionmental policy moie
specifically to make it moie suppoitive of uevelopment that is sustainable because it
seives economic, enviionmental anu social objectives. In this legislative context, it
is appiopiiate to incluue a guiuing piinciple which iecognizes the
inteiconnecteuness of the economy, the enviionment anu society in the iegulatoiy
fiamewoik foi Nova Scotia's aquacultuie inuustiy.

g. ;%/),($*&# - The Rounutable pioposeu that the iegulatoiy fiamewoik shoulu
"Embouy the piecautionaiy piinciple as uefineu in the Rio Beclaiation on
Enviionment anu Bevelopment, 1992: "Wheie theie aie thieats of seiious oi
iiieveisible uamage, lack of full scientific ceitainty shall not be useu as a ieason foi
postponing cost-effective measuies to pievent enviionmental uegiauation."
2S
This is
the uefinition of the piinciple alieauy in the !"#$%&"'(") 67) anu we agiee that
piecaution shoulu be an explicit pait of the iegulatoiy fiamewoik foi aquacultuie.
We think howevei it shoulu be thought to have a bioauei application in that context
than the piecautionaiy piinciple is often inteipieteu to have. 0ften in uiscussions of
the piinciple, it is assumeu that its only application is to the uecision of whethei to
allow an activity to happen oi to continue. uiven the natuie of the aquacultuie
inuustiy, its cuiient state of uevelopment, anu the uegiee of unceitainty about its
impacts on the ieceiving enviionment, we feel that a moie geneial application of a
pieacautionaiy appioach is waiianteu.
26
We use the teim piecautionaiy appioach
uelibeiatively, because it signals an application of piecaution that goes beyonu the
limiteu woiuing of the piecautionaiy piinciple. Nost specifically, we uon't feel that
the piecautionaiy appioach shoulu be tieu to some thiesholu of scientific
knowleuge oi level of iisk. Rathei, a moie geneial piecautionaiy appioach is
waiianteu, with the specific action linkeu to the uegiee of iisk anu unceitainty.
Nost impoitantly, wheie theie is iisk anu unceitainty, inciemental uevelopment in
combination with monitoiing anu ieseaich to gain a bettei unueistanuing of
impacts anu iisks, shoulu be the piefeiieu appioach. This uoes not mean, of couise,
that theie will not be ciicumstances wheie a piecautionaiy appioach suggests no
uevelopment, such as in case of cleai conflict with the iecovei of enuangeieu
species. We note that the piecautionaiy appioach shoulu not be thought of as
ielevant only oi even piimaiily as a fiee-floating guiuing piinciple that applies only

23
1hls Culdlng rlnclple" recelved unanlmous supporL from Lhe 8oundLable. (8oundLable llnal 8eporL, page 6)
26
1he 8oundLable lndlcaLed parLlal supporL for Lhe recommendaLlon LhaL, 1he precauLlonary approach should be
employed when daLa ls llmlLed or absenL." 1he 8oundLable was unable Lo properly dlscuss Lhe dlfference beLween
Lhe precauLlonary prlnclple and Lhe precauLlonary approach. (8oundLable llnal 8eporL, page 19)
32
wheie the iegulatoiy fiamewoik uoes not ueal specifically with an issue oi
question. As with each of the othei guiuing piinciples we have pioposeu, we have
been guiueu by the piecautionaiy appioach in ueveloping each element of this
iegulatoiy fiamewoik. It is only in this way can the iegulatoiy fiamewoik be saiu to
"embouy" the piecautionaiy appioach.

This pioposeu list of guiuing piinciples uoes not incluue all of the guiuing piinciples pioposeu by
the Rounutable. It also uoes not incluue a numbei of iegulatoiy piinciples that have been pioposeu
in the acauemic anu policy liteiatuie oi that have been incoipoiateu into the iegulatoiy piinciples
auopteu in vaiious juiisuictions. We think howevei that to be useful, a list of guiuing piinciples
neeus to be ielatively manageable anu that a list with moie than seven guiuing piinciples is likely to
become unwieluy anu unhelpful. In auuition, oui list of seven piinciples incluue most of those
founu on most pioposeu lists of iegulatoiy piinciples. They aie also, in oui opinion, the seven
piinciples which aie most impoitant anu iesponsive to the impiovements that aie neeueu in the
iegulation of aquacultuie in Nova Scotia.

Fuithei, it is to be noteu that many of the guiuing piinciples suggesteu by the Rounutable which we
have not incluueu in oui list of guiuing piinciples aie auuiesseu in oui pioposeu list of goals foi the
iegulatoiy fiamewoik. The same can be saiu foi a numbei of the iegulatoiy piinciples founu in the
liteiatuie that we have not incluueu in oui list of guiuing piinciples. A numbei of these aie
encompasseu by two of the pioposeu goals: "Ensuiing that iegulations aie achievable, contain
incentives foi compliance anu can be enfoiceu"
27
; anu "Ensuiing the iegulation of aquacultuie in
Nova Scotia is efficient, timely, uepenuable, pieuictable anu affoiuable foi both taxpayeis anu
businesses".











27
1hls Culdlng rlnclple" recelved unanlmous supporL from Lhe 8oundLable. (8oundLable llnal 8eporL, age 7)
33
\ 4&-/ &2 ,#' )&&=/%,$*&# 7*$3 +/'/%,- 4/5(-,$&%1

\9P Q,)85%&(#'
The BF0 plays a iange of ioles in the iegulation of aquacultuie acioss the countiy. In Biitish
Columbia, it is the piimaiy iegulatoi of aquacultuie puisuant to a couit iuling that aquacultuie in
that piovince fell unuei feueial fisheiy juiisuiction. The BF0 iegulates aquacultuie in BC unuei
iegulations maue unuei the 8$.9(%$(. 67). 0nuei these iegulations, the feueial Ninistei of Fisheiies
plays the same iole in licensing as piovincial ministeis foi fisheiies anu aquacultuie play in most
othei piovinces.
Anothei mouel is founu in Piince Euwaiu Islanu wheie the feueial Ninistei of Fisheiies is the
licensing authoiity. 0nlike in BC howevei, the feueial Ninistei caiiies out that iesponsibility in
accoiuance with an N00 with the piovince unuei which a committee of feueial anu piovincial
officials ieviews the applications anu auvises the Ninistei on whethei they shoulu be gianteu oi
iefuseu anu on all associateu matteis, such as the teims anu conuitions to be incluueu in licences.
The Ninistei consistently follows the auvice of this committee. The iegulatoiy piocess in PEI can
theiefoie be uesciibeu as one of feueial-piovincial co-iegulation.
In Nova Scotia, New Biunswick anu Newfounulanu anu Labiauoi, the aquacultuie inuustiy is
compiehensively iegulateu by the piovincial ministei iesponsible foi aquacultuie, who in each
piovince is the ministei iesponsible foi fisheiies as well as aquacultuie. 0nuei this mouel, the
feueial goveinment paiticipates in the iegulatoiy piocess laigely by pioviuing input into the
piovincial licensing piocess. This input can consist of auvice oi guiuance that the piovince takes
into account in its licensing uecisions. It can howevei also consist of iequiiements that the feueial
iegulatoi must have auuiesseu to concluue the pioject is going foiwaiu in compliance with the
iequiiements of feueial law. In this way, feueial-piovincial N00s in these piovinces can iesult in a
uelegation of feueial iegulatoiy authoiity to the piovincial level.
Typically, the feueial input into the piovincial licensing piocess comes fiom the BF0 anu ielates to
the compatibility of the pioposeu pioject with fisheiies oi fish habitat piotecteu unuei the 8$.9(%$(.
67). Wheie it is applicable, the BF0 will also take the 04(7$(. *) ;$.A 67) into account in pioviuing
input to the piovincial licensing piocess. The othei kinu of input ieceiveu fiom the feueial
goveinment comes fiom the Coast uuaiu, which is pait of the Bepaitment of Tianspoit, unuei the
N*#$>*)$&" 3%&)(7)$&" 67), which iecently ieplaceu the N*#$>*2+( F*)(%. 3%&)(7)$&" 67).
Feueial iegulation also applies to the aquacultuie inuustiy in Nova Scotia in moie uiiect ways. Foi
example, the Coast uuaiu can inteivene to auuiess obstacles to navigation oi compliance with the
teims of a lease that ieflect the Coast uuaiu's iequiiements ielative to navigation. We fiequently
heaiu about the applicability of iegulations unuei the 8$.9(%$(. 67), which contiol the tiansfei anu
movement of fish stock between bouies of watei oi fiom bouies of watei to maiket. The puipose of
these iegulations is to pievent the tiansfei of uisease oi paiasites anu to pievent haivesting
activities that thieaten wilu stocks.
34
We heaiu that feueial iegulations aie sometimes applieu to aquacultuie in ways that uo not ieflect
the uiffeiences between wilu anu faimeu stocks. The example we weie given was the application to
gioweis of cocktail oysteis which aie giown to be less than x centimeteis in uiametei of 8$.9(%5 67)
iegulations which piohibit the haivesting of oysteis of less than x centimeteis as a means of
piotecting wilu stocks of oysteis.
These examples of uiiect iegulation of the inuustiy by feueial iegulatois notwithstanuing, the coie
featuie of the ielationship between the feueial anu piovincial goveinments unuei theii N00's is
that feueial iegulatois seek to achieve theii iegulatoiy objectives piimaiily thiough theii
contiibutions to the piovincial licensing piocess. Fiom an inuustiy peispective, the auvantage of
this is that the iegulatoiy piocess is moie cooiuinateu anu stieamlineu than it otheiwise might be.
Compaiable cooiuination anu stieamlining coulu piesumably be achievable by auoption of the BC
mouel unuei which the BF0 is the compiehensive iegulatoi of aquacultuie but this might ieuuce
the iesponsiveness of the iegulatoiy fiamewoik to Nova Scotia's specific conuitions. In auuition,
uiffeient aiguments on the juiisuictional limits of the two levels of goveinment than those
consiueieu in BC woulu aiise in the Nova Scotia context. Finally, iepiesentatives of the BF0 weie
veiy cleai in oui meeting with them that the BF0 is not inteiesteu in becoming the compiehensive
iegulatoi of aquacultuie in Nova Scotia.
The Canauian Foou Inspection Agency (CFIA) anu Bealth Canaua also play impoitant ioles in the
iegulation of aquacultuie. The CFIA is iesponsible foi ueveloping anu implementing the National
Aquatic Animals Bealth Piogiam (NAABP). This piogiam is Canaua's iesponse to its obligations as
a membei of the Woilu Tiaue 0iganization (WT0) to implement a piogiam of aquatic animal
health that is compliant with stanuaius issueu by the Woilu 0iganization foi Animal Bealth
(W0AB). 0nuei the NAABP, the manuate of the CFIA is to ensuie that wilu anu faimeu aquatic
animals aie piotecteu against seiious infectious uiseases. The pathogens iegulateu unuei the
NAABP aie iegulateu because "they can be potentially uevastating both economically anu
ecologically to wilu fisheiies anu aquacultuie opeiations". The NAABP enables Canaua to ceitify
fish anu seafoou expoits as being fiee of pathogens that have been ueteimineu to be of
inteinational concein. This gives Canauian fish anu seafoou piouucts access to the maikets of othei
countiies. Canaua is in tuin entitleu to iequiie the same ceitification fiom othei countiies oi to
block impoitation fiom a countiy that is not able to pioviue ceitification. The oveiall objective of
the system is pievent the tiansfei of pathogens fiom Canaua to othei countiies anu fiom othei
countiies to Canaua.
The implementation of the NAABP uepenus on suiveillance that happens in the inuustiy anu at the
piovincial level unuei systems of suiveillance than must satisfy CFIA. Suiveillance is foi pathogens
that aie incluueu on the list of iepoitable anu notifiable uiseases that has been establisheu by CFIA.
In the Nova Scotia aquacultuie inuustiy, a cential pait of the system of suiveillance is the iole the
piovincial veteiinaiian plays as both the pioviuei of veteiinaiy seivices to the inuustiy anu the
iegulatoi of the inuustiy on matteis ielating uiiectly to the health of faimeu fish.
Two bianches of Bealth Canaua also play a iegulatoiy iole in aquacultuie. The Pest Nanagement
Regulatoiy Agency (PNRA) ueciues which pesticiues may be useu in Canaua. Like othei inuustiies,
aquacultuie is piohibiteu fiom using pesticiues not appioveu foi use in Canaua by the PNRA. The
33
veteiinaiian Biugs Biiectoiate, which is pait of the Bealth Piouucts anu Foou Bianch of Bealth
Canaua, ueciues which uiugs may be useu in tieating oi pieventing illness anu uisease in foou-
piouucing animals. Like faiming, aquacultuie cannot use uiugs that aie not appioveu foi use in
Canaua by the vBB.
The piovinces also have juiisuiction ovei aspects of the iegulation of the use of pesticiues anu
veteiinaiian uiugs. Appioveu pesticiues must be useu in Nova Scotia in accoiuance with any
iegulations that the piovince auopts oi authoiizes ielating to issues such as peimitteu methous anu
fiequencies of application, the tiaining that must be pioviueu to applicatois, the notifications that
must be given befoie application, anu the uistances that must be maintaineu between the aiea of
application anu iesiuences oi bouies of watei. Similaily, appioveu uiugs must be useu as
piesciibeu by a veteiinaiian who is licenseu to piactice veteiinaiian meuicine unuei piovincial
legislation.
Theie aie two othei aspects of the involvement of the feueial goveinment in aquacultuie that
iequiie mention. The fiist is that until iecently, aquacultuie iequiiing a peimit oi appioval unuei
feueial legislation woulu iequiie oi "tiiggei" an enviionmental assessment unuei the :*"*/$*"
!"#$%&"'(")*+ 6..(..'(") 67). In all cases, this assessment was conuucteu as a scieening level
ieview by the feueial iegulatoi calleu upon to ueciue the application foi a peimit oi appioval in
which the public coulu paiticipate. Typically, these ieviews weie tiiggeieu unuei the N*#$>*)$&"*+
F*)(%. 3%&)(7)$&" 67). 0nuei a new veision of the :*"*/$*" !"#$%&"'(")*+ 6..(..'(") 67) auopteu
in 2u12, feueial consiueiation of aquacultuie piojects will no longei involve an enviionmental
assessment. Inueeu, foi piactical puiposes, this woulu have occuiieu even if the :*"*/$*"
!"#$%&"'(")*+ 6..(..'(") 67) hau not been changeu given the ieplacement of the N*#$>*2+(
F*)(%=*5. 3%&)(7)$&" 67) with the N*#$>*)$&" 3%&)(7)$&" 67). 0nuei the lattei Act, aquacultuie
piojects woulu in most cases not have tiiggeieu an enviionmental assessment unuei the veision of
the :*"*/$*" !"#$%&"'(")*+ 6..(..'(") 67) in foice until 2u12.
The seconu auuitional element of the feueial iole ielates to the ieliance of piovincial iegulatois on
the expeitise of BF0 scientists anu on scientific stuuies piouuceu by scientists funueu oi employeu
by the feueial goveinment anu in paiticulai by the BF0. Thiough oui piocess, we heaiu fiequent
concein about the extent to which the feueial goveinment anu the BF0 in paiticulai is peiceiveu to
be ieuucing its investment in the science that policy-makeis neeu to bettei unueistanu the impact
of aquacultuie (anu the impact of the enviionment on aquacultuie) anu that iegulatois neeu to
impiove theii iegulation of aquacultuie. In oui meeting with BF0 iegulatois, we weie stiongly
assuieu that these conceins weie unfounueu anu tolu that the BF0 has actually ieceiveu incieaseu
funuing to woik on the science neeueu foi effective iegulation of aquacultuie.

\9W J3/ _*$,- "0=&%$,#)/ &2 "#$/%5&H/%#0/#$,- 4/5(-,$&%6 :&--,U&%,$*&#
It was not within oui manuate to consiuei if juiisuiction ovei the iegulation of aquacultuie in Nova
Scotia shoulu oi can be ieallocateu. Bespite this, it is obvious that one of the uifficulties to be
auuiesseu in ueveloping an effective iegulatoiy fiamewoik is the uivision of iegulatoiy authoiity
between feueial anu piovincial iegulatois.
36
Conceptually, theie aie two kinus of solutions to this pioblem. 0ne is foi eithei the piovince oi the
feueial goveinment to become the exclusive iegulatoi. The othei is foi the two levels of
goveinment to effectively collaboiate in caiiying out theii iespective functions so ensuie that the
iegulation of aquacultuie is as cooiuinateu anu seamless as it can be when pait of it is piovincial
anu pait of it is feueial.
The fiist option may not be available foi legal oi piactical ieasons. uiven the natuie of the ielevant
competing juiisuictions, it coulu only be achieveu by having the BF0 become the leau anu
compiehensive iegulatoi of aquacultuie, as it has in Biitish Columbia. It is not cleai howevei
whethei oi not it woulu have the same juiisuictional authoiity to uo so in Nova Scotia. Noieovei, it
uoes not appeai to us that the BF0 wants to take on the same iole in Nova Scotia as it has Biitish
Columbia.
Noieovei, a wholesale feueialization of the iegulatoiy fiamewoik may not be uesiiable fiom Nova
Scotia's peispective. The iesponsiveness of the iegulatoiy fiamewoik to Nova Scotia's specific
conuitions might be ieuuceu. In auuition, Nova Scotia woulu lose the oppoitunity it cuiiently has
to make effective iegulation of the inuustiy pait of a bioauei stiategy to uevelop the inuustiy in
accoiuance with Nova Scotia's own economic, enviionmental anu social objectives. Thiiu, the
oppoitunity to integiate iegulation of aquacultuie with othei piocesses of coastal iesouice
planning anu management that aie fully within Nova Scotia's juiisuiction may be lost oi impaiieu.
The seconu option - iegulatoiy collaboiation - only auuiesses the complications that aiise fiom the
uivision of iegulatoiy iesponsibility between the two levels of goveinment if iegulatoiy
collaboiation between piovincial anu feueial iegulatois is a cential element of the iegulatoiy
fiamewoik foi both levels of goveinment. The vehicle Nova Scotia anu Canaua cuiiently use to
cooiuinate theii iegulatoiy activities is an N00. We heaiu many positive things about the woiking
ielationships that exist unuei this N00. Neveitheless, oui conclusion is that it may not be
achieving the level of cooiuination anu collaboiation that can be achieveu oi that is neeueu foi
optimal iegulatoiy effectiveness.
Fiom an inuustiy peispective, we heaiu conceins about the numbei of iegulatois, iegulatoiy
piocesses anu iegulatoiy iequiiements it must ueal with. We also heaiu conceins about the
application to the inuustiy of feueial iegulatoiy iequiiements that aie uesigneu to conseive anu
piotect wilu fish stocks but that aie neveitheless applieu to aquacultuie. The example was the
application to the gioweis of cocktail oysteis of feueial iegulations that piohibit the movement of
small oysteis as a way of uiscouiaging the haivest of immatuie wilu oysteis.
Fiom a bioauei iegulatoiy effectiveness peispective, we heaiu conceins that the iegulatoiy
piocess is not sufficiently infoimeu by oi giounueu in science. Foi some, this is because it is laigely
in the hanus of the piovince iathei than in the hanus of the BF0. Conceins weie also iaiseu about
whethei the BF0 is as committeu as it once was to pioviuing the piovinces anu the inuustiy with
the science they neeu to make goou uecisions on the inteiaction between aquacultuie anu the
enviionment. We also heaiu conceins expiesseu about the lack of iigoui in the iegulatoiy piocess
that coulu be inteipieteu as conceins that iegulation lacks iigoui because it is in the hanus of the
piovinces iathei than the feueial goveinment. This inteipietation flows fiom the giounus foi the
conceins, which is that the piovince is not equippeu oi iesouiceu to iegulate iigoiously anu may be
37
too close to the inuustiy to be willing to uo so in any event. The iepiesentatives of the BF0 we met
with uiu not question the will oi iegulatoiy capacity of the piovince but they uiu state veiy
unequivocally that the giowth of the inuustiy uepenueu on public confiuence that the inuustiy was
being piopeily iegulateu.
0ui own analysis leaus us to concluue that a ielateu but uistinct concein is that issues that may
iequiie iegulatoiy attention may not ieceive that attention because they aie being alloweu to fall
thiough the ciacks between feueial anu piovincial iegulatoiy iesponsibility. This may be
happening by the tenuency of the piovince to iegaiu ceitain iegulatoiy issues as moie exclusively
feueial than they actually aie.
Foi example, one of the fiequently expiesseu conceins about aquacultuie activities is the impact
they can have on commeicial anu iesiuential boating. The feueial goveinment has juiisuiction ovei
navigation anu the piovince is bounu by any limitations the feueial goveinment places on
aquacultuie to auuiess navigational conceins. But theie is no constitutional impeuiment to the
piovince imposing auuitional limitations to auuiess conceins about navigation that aie not within
the statutoiy manuate of the Coast uuaiu. The same can be saiu about the iole of the limitations the
BF0 places on aquacultuie to piotect wilu fish stocks - uepenuing on how these aie expiesseu by
the BF0, they may be binuing not only on opeiatois but also the piovince but this uoes not mean
the piovince cannot impose auuitional limitations it ueciues aie appiopiiate to piotect wilu fish
stocks.
In examples such as these, the piovince may be failing to fully consiuei its iegulatoiy authoiity anu
iesponsibilities by taking the view that theie aie only navigational issues oi wilu fish issues to be
auuiesseu if the ielevant feueial iegulatois say theie aie navigational oi wilu fish issues to be
auuiesseu. Assuming the piovince has the juiisuiction ovei aquacultuie it claims to have, this
ignoies the ancillaiy juiisuiction it has to ueal inciuentally with matteis in feueial juiisuiction when
it is uoes so as pait of its iegulation of aquacultuie. Noieovei, we believe that Nova Scotia's iole as
the piimaiy anu compiehensive iegulatoi of aquacultuie means that Nova Scotia is iesponsible foi
using this ancillaiy juiisuiction (in ways that aie compatible with feueial law) to ensuie that the
iegulatoiy fiamewoik is fully iesponsive to the issues that the iegulatoiy fiamewoik neeus to
auuiess. 0n the navigational issues, Piince Euwaiu Islanu illustiates how this can be uone: it has
auopteu legislation iequiiing all opeiatois to pioviue a stanuaiuizeu navigational channel oi space
to boateis. This is in auuition to any limitations iespecting navigation that may be imposeu on
specific opeiatois by the Coast uuaiu.
0ui conclusions baseu on this uiscussion foi the iegulatoiy fiamewoik in Nova Scotia aie as
follows:
a. Nova Scotia shoulu continue to woik with the BF0 anu othei feueial iegulatois
thiough the mechanism of an N00 to ensuie the entiie iegulatoiy fiamewoik foi
aquacultuie in Nova Scotia is as effective, cohesive, cooiuinateu anu stieamlineu as
it can be uespite the uivision of iegulatoiy authoiity between the two levels of
goveinment. The objective shoulu be to make this uivision of iegulatoiy authoiity
as iiielevant to the iegulation of the inuustiy as it can possibly be. Specifically,
Nova Scotia's goal shoulu be to ensuie that shaieu juiisuiction ovei aquacultuie
38
uoes not make compliance with iegulation moie uifficult oi costly than it otheiwise
woulu be. It shoulu also be to ensuie that shaieu juiisuiction uoes not minimize oi
ieuuce the oveiall effectiveness of iegulation in achieving enviionmental piotection
anu othei iegulatoiy objectives.

b. In oiuei to achieve the uesiieu level of cohesion between feueial anu piovincial
iegulation, Nova Scotia shoulu woik to ensuie feueial-piovincial iegulatoiy
collaboiation is baseu on a stiong anu cleai uelineation of ioles anu iesponsibilities
anu a cleai aiticulation of the iegulatoiy objectives of each level of goveinment.
28

Nova Scotia shoulu woik to ensuie that collaboiation stiengtheneu by the
uevelopment of common oi shaieu iegulatoiy objectives that stiess iegulatoiy
iigoui anu the avoiuance anu elimination of unnecessaiy iegulation anu of
iegulatoiy cost, piocess oi auministiative buiuen. Nova Scotia shoulu encouiage
the BF0 anu the feueial goveinment moie bioauly to take the uiffeiences between
aquacultuie anu fishing fully into account in the making oi inteipietation of feueial
fisheiies laws.

Nova Scotia shoulu woik with the BF0 anu the feueial goveinment moie bioauly to
uevelop a common list of piioiities foi the scientific ieseaich neeueu to suppoit anu
impiove the effectiveness of iegulation in Nova Scotia's aquacultuie inuustiy. Nova
Scotia shoulu offei collaboiation to the BF0 in ueveloping anu implementing a plan
foi ieseaich on these piioiities by goveinment oi by scientists in the bioauei
ieseaich community. In both iegaius, Nova Scotia shoulu be a leauei in pioposing a
iegional iathei than a piovincial appioach that emphasizes:

(i) The impoitance of aquacultuie to all of Atlantic Canaua;
(ii) The neeu foi ieseaich that ieflects the paiticulai biophysical,
geogiaphic anu socio-economic conuitions of Atlantic Canaua; anu
(iii) The ieseaich capacity in Atlantic Canaua.


c. To the full extent alloweu by constitutional law, Nova Scotia shoulu be willing anu
piepaieu to exeicise its authoiity as the piimaiy compiehensive iegulatoi of
aquacultuie in Nova Scotia to iegulate inciuentally on matteis piimaiily within

28
AL Lhe 8oundLable, Lhere was quallfled approval for Lhe recommendaLlon LhaL, 1he rovlnce should conLlnue
dlscusslons wlLh Lhe CovernmenL of Canada Lo clearly dellneaLe areas of responslblllLy for Lhe plannlng, regulaLlon
and managemenL of aquaculLure". 1he expressed reason glven by some who quallfled Lhelr supporL for Lhls
recommendaLlon focussed on Lhe Lypes of dlscusslons presenLly ongolng and Lherefore Lhe preclse meanlng of
conLlnue dlscusslons". 1here was also quallfled supporL for a recommendaLlon LhaL, 1he regulaLory framework
should deflne Lhe roles and responslblllLles for Lhe provlnce, federal governmenL, llrsL naLlons, Lhe aquaculLure
lndusLry, communlLles and oLher parLles dlrecLly lmpacLed.


39
feueial juiisuiction wheie it is necessaiy to ensuie the completeness anu
effectiveness of the iegulatoiy fiamewoik.
































40
] ?/=,%$0/#$,- 4/1=&#1*U*-*$*/1 2&% 4/5(-,$*#5 DE(,)(-$(%/

The activities of the Nova Scotia goveinment in ielation to aquacultuie aie compiehensively
houseu within the Bepaitment of Fisheiies anu Aquacultuie. This means the same Ninistei, Beputy
Ninistei anu uepaitment have iesponsibility foi piomoting anu suppoiting the inuustiy anu foi
iegulating the inuustiy. Both lines of activity take place unuei the same statute, the 8$.9(%$(. *"/
:&*.)*+ ;(.&1%7(. 67). The content anu tone of this legislation is heavily weighteu in the uiiection of
the Ninistei's iole in piomoting the economic uevelopment of the fisheiy anu aquacultuie
inuustiies. Putting the combineu manuate of the Ninistei togethei with the legislation, one coulu
concluue that the Ninistei is the Ninistei foi the inuustiy anu likewise that the Bepaitment is the
inuustiy's uepaitment.
The iegulation that is applieu to aquacultuie is oveiwhelmingly conceineu with minimizing oi
mitigating the inuustiy's impact on the enviionment. It woulu theiefoie not be inaccuiate to say
the iegulatoiy fiamewoik foi aquacultuie is a kinu of specializeu enviionmental iegulation. In
othei woius, wheieas othei inuustiies aie subject to enviionmental iegulation unuei the
!"#$%&"'(") 67), the enviionmental consequences of aquacultuie aie auuiesseu in aquacultuie
iegulations.
This legislative, iegulatoiy anu oiganizational mouel is useu acioss Canaua. Bue to the fact that the
BF0 is both iegulatoi anu piomotei, it can be saiu to be the mouel useu in Biitish Columbia, wheie
the iegulation of aquacultuie is laigely feueial, anu thioughout Atlantic Canaua, wheie iegulation is
eithei piovincial oi, in the case of Piince Euwaiu Islanu, feueial with significant piovincial
involvement.
This is also how the iegulation of aquacultuie is auuiesseu in juiisuictions outsiue of Canaua. In
Noiway, Scotlanu, Chile anu Naine, the iegulation of aquacultuie is laigely the iesponsibility of the
same goveinment entity that piomotes anu suppoits the giowth of the inuustiy.
Noieovei, this mouel is a veiy common appioach to iegulation acioss the natuial iesouices sectois
of faiming, fishing, anu foiestiy. Bistoiically, it was also the appioach taken to the iegulation of
mining but foi many uecaues, the enviionmental iegulation of mining has been by enviionmental
iegulatois acting unuei "geneiic" enviionmental legislation.
Conceins about the uual manuate of the Ninistei anu Bepaitment of Fisheiies anu Aquacultuie
weie fiequently iaiseu in oui piocess.
29
Nany expiesseu concein about what they peiceiveu to be
an unavoiuable conflict between the two ioles that unueimineu confiuence in the inuepenuence,
objectivity anu iigoui of the iegulatoiy piocess. To put it veiy bluntly, many tolu us flatly anu
unequivocally that they coulu not tiust a iegulatoi of the inuustiy who was also iesponsible foi
piomoting anu suppoiting the uevelopment anu giowth of the inuustiy. Fiequently, we weie tolu

29
1he 8oundLable lndlcaLed parLlal supporL for a recommendaLlon LhaL, 1he regulaLory framework should ensure
LhaL responslblllLy and accounLablllLy for Lhe regulaLlon of aquaculLure ls clearly separaLed from Lhe funcLlon of
lndusLry promoLlon and markeLlng Lo prevenL acLual or percelved confllcL of lnLeresL. 1hls may be accompllshed by
movlng regulaLory responslblllLy Lo a dlfferenL deparLmenL or by oLher means Lo be deLermlned by Lhe anel."
41
that the uistiust was accentuateu wheie goveinment pioviueu significant economic uevelopment
funuing to a specific aquacultuie business.
We weie uigeu by many to iecommenu a iegulatoiy fiamewoik unuei which iesponsibility foi
iegulating aquacultuie woulu be moveu to the Ninistei of Enviionment. We have thought veiy
seiiously about the mattei, as in many ways, it goes to the heait of the lack of tiust that is at the
centie of much of the uissatisfaction with the cuiient iegulatoiy fiamewoik. In the enu howevei,
subject to what we say below on the issues of enviionmental monitoiing anu enviionmental
assessment, we have concluueu that iesponsibility foi iegulation of aquacultuie shoulu otheiwise
iemain with the Ninistei of Fisheiies anu Aquacultuie. Theie is howevei, an impoitant pioviso to
this conclusion: it uepenus on acceptance anu implementation of the othei elements of oui
pioposeu iegulatoiy fiamewoik, many aspects of which aie uesigneu to auuiess by othei means
the palpable uistiust which exists with the cuiient iegulatoiy fiamewoik.
We have ieacheu this conclusion foi the following ieasons:
a. Fiist, it is impoitant to note that although the iegulation of aquacultuie is laigely
conceineu with enviionmental piotection, it is not exclusively conceineu with
enviionmental piotection. It also conceins the use of a public iesouice - coastal
wateis - anu the place of aquacultuie in the uevelopment, use anu piotection of
coastal iesouices. It may not make sense to ieallocate these aspects of the
iegulatoiy fiamewoik to the Bepaitment of the Enviionment. It woulu give that
uepaitment a uiffeient ielationship to aquacultuie than it has to othei inuustiies.

b. The iesult of ieallocating the enviionmental aspects of piovincial iegulation of
aquacultuie to the Bepaitment of Enviionment woulu auu to the alieauy complex
iegulatoiy lanuscape that exists within the sectoi. It woulu mean that iegulatoiy
authoiity was not only uiviueu between the feueial anu piovincial goveinments, but
then sub-uiviueu between two piovincial uepaitments. This might ueal with the
institutional tiust issue by making iegulation less cohesive anu oiganizeu.

c. As uiscusseu eailiei, piovincial iegulation of aquacultuie alieauy suffeis fiom a lack
of iegulatoiy capacity. We have concluueu that the piovince's iegulatoiy capacity
must be incieaseu if Nova Scotia is to have a viable anu tiustwoithy iegulatoiy
fiamewoik. We think that the capacity-gap is moie likely to be auuiesseu cost-
effectively if the incieaseu capacity is concentiateu in one uepaitment iathei than
uiviueu between two uepaitments. It is impoitant to iecognize that the Bepaitment
of Enviionment may cuiiently have veiy little of the capacity anu expeitise it might
neeu to become an effective iegulatoi of aquacultuie. If it weie given a bioau
iegulatoiy iesponsibility foi aquacultuie without this lack of capacity anu expeitise
being auuiesseu, it might have little choice but to iely extensively on the
Bepaitment of Fisheiies anu Aquacultuie foi auvice. To avoiu this, the Bepaitment
of Enviionment might iequiie such a laige peicentage of the piovince's incieaseu
iegulatoiy capacity as to leave the Bepaitment of Fisheiies anu Aquacultuie
unequippeu to ueal with its continuing iesponsibilities.
42

u. Biviuing iegulatoiy functions between two uepaitments might complicate Nova
Scotia's ability to collaboiate on aquacultuie with othei goveinments in Atlantic
Canaua, all of which combine inuustiy piomotion anu suppoit with iegulation in
one goveinment uepaitment that is also iesponsible foi the fisheiy manuate.

e. While sepaiating the iegulatoiy iole fiom the inuustiy uevelopment iole might
impiove confiuence in the inuepenuence anu tiustwoithiness of the iegulatoiy
piocess, it may oi may not iesult in impioveu iegulatoiy effectiveness. Neanwhile,
we aie confiuent that iegulatoiy effectiveness can be impioveu by the auoption anu
implementation of the iegulatoiy fiamewoik we have pioposeu.

f. Even if we weie otheiwise inclineu to assign the iegulatoiy iesponsibility to the
uepaitment of enviionment, the appioval piocess anu the enviionmental
assessment piocess in Paits Iv anu v of the NS !"#$%&"'(") 67) woulu iequiie
significant enhancement to seive as useful iegulatoiy tools foi aquacultuie. Public
engagement anu tianspaiency in paiticulai, woulu have to be enhanceu significantly
in both piocesses.

















43
^ 4/1$%()$(%*#5 &2 $3/ D'0*#*1$%,$*&# &2 $3/ 4/5(-,$&%6 +%,0/7&%8

While we concluue that the iegulatoiy fiamewoik shoulu continue to be auministeieu by anu on
behalf of the Ninistei of Fisheiies anu Aquacultuie, we also concluue that impoitant changes neeu
to be maue to how the iegulatoiy fiamewoik is auministeieu to auuiess legitimate conceins about
its inuepenuence, objectivity, uepenuability anu effectiveness. Among the changes aie much gieatei
levels of openness, tianspaiency anu claiity, a tiansfei of iesponsibility foi the Enviionmental
Nonitoiing Piocess to the Bepaitment of Enviionment anu legislative changes that ieuuce the
iegulatoiy piocess's uepenuency on ministeiial uiscietion.
Each of those aspects of the pioposeu iegulatoiy fiamewoik is uiscusseu elsewheie in this
uocument. Beie, we focus on anothei set of changes we think will be impoitant to iestoiing anu
maintaining confiuence in a iegulatoiy fiamewoik that is piimaiily auministeieu by the Ninistei of
Fisheiies anu Aquacultuie anu his staff. The changes aie to cieate gieatei anu cleaiei opeiational
sepaiation between the Bepaitments' iegulatoiy anu inuustiy piomotion functions within the
Bepaitment of Fisheiies anu to foimalize the iole of uepaitmental officials in the iegulatoiy
piocess.
0n the sepaiation of functions, theie shoulu be a cleai oiganizational uemaication within the
Bepaitment of Fisheiies anu Aquacultuie between those who have uecision-making iesponsibilities
in the iegulatoiy piocess anu those who aie involveu in woiking to giow anu uevelop the inuustiy.
To implement anu ieinfoice this, the iegulatoiy function shoulu be leu by an official oi officials who
iepoit uiiectly to the Beputy Ninistei oi to an Associate Beputy Ninistei as the Beputy Ninistei's
uesignate.
0n the foimalization of the iole of uepaitmental officials in the iegulatoiy piocess, we believe the
legislation shoulu assign iesponsibility foi leauing anu managing the iegulatoiy piogiam to a
statutoiy officei who woulu by statute belong to the public seivice. The position woulu iepoit
uiiectly to the Beputy Ninistei oi to the Associate Beputy Ninistei as the uesignate of the Beputy
Ninistei. The Act shoulu set out the manuate of this official with sufficient uetail to accomplish
thiee objectives: to make it cleai that the manuate is a statutoiy one; to make it cleai the manuate is
limiteu to iegulation; anu to ensuie the manuate encompasses the whole of the iegulatoiy function,
subject of couise to the geneial authoiity of the Ninistei ovei the woik of the Bepaitment as a
whole.
We believe the manuate of the statutoiy official iesponsible foi iegulation shoulu incluue
iesponsibility foi uecision-making on aquacultuie licences. This is the mouel useu in New
Biunswick. Legislation woulu continue to confei bioau poweis, ultimate authoiity anu
accountability foi oveisight anu policy-making on the Ninistei. It woulu howevei assign
auministiative iesponsibilities foi the iegulation of that inuustiy to an "Auministiatoi". The
statutoiy manuate of the Auministiatoi woulu incluue uecision-making on applications foi licences.
In auuition, a legislative mouel in which licensing is a public seivice function subject to Ninisteiial
oveisight anu policy-making woulu biing the iegulation of aquacultuie into line with mouein
appioaches to enviionmental iegulation. 0nuei the !"#$%&"'(") 67) (anu enviionmental
44
legislation thioughout Canaua), uecision-making on inuustiial peimits is hanuleu by buieauciatic
officials wheieas in the 197u's anu 198u's, it woulu moie typically have been uone by Ninisteis of
Enviionment.
We unueistanu that this will be less of a sepaiation than can be cieateu by placing iesponsibility foi
iegulation in anothei uepaitment. We also unueistanu that some will say that an oiganizational
sepaiation within a goveinment uepaitment will be aitificial anu theiefoie ineffective. We uo not
ieject these conceins out-of-hanu but insteau say that they unueistate the benefits that can come
fiom gieatei legislative uiffeientiation between the iegulatoiy anu piomotional functions of the
uepaitment of Fisheiies anu Aquacultuie anu legislative allocation of iegulatoiy iesponsibility to
the buieauciatic level. Specifically, we think these benefits can incluue:
a. uieatei claiity foi officials in both bianches of the Bepaitment's manuate, as well as
foi those they woik with, as to which "hat" they aie supposeu to be weaiing;

b. Neaningful piotection against iegulatoiy iesponsibilities being suboiuinateu to
inuustiy uevelopment objectives anu piioiities;

c. Incieaseu inuepenuence of uecision-making by those who have iegulatoiy
functions anu iesponsibilities; anu

u. A less political anu moie piofessionalizeu iegulatoiy piocess.















43
` .#H*%&#0/#$,- O&#*$&%*#5 ;%&)/11
In 2uuS, the NSBFA implementeu an enviionmental monitoiing piocess foi fin-fish aquacultuie. In
oui piocess, no one questioneu the neeu foi such a piocess anu in oui view, it shoulu be continueu.
We believe howevei it shoulu be stiengtheneu in six impoitant iespects.
a. Fiist, the piocess shoulu be establisheu in legislation. In othei woius, existence of
the piocess shoulu not uepenu on a uecision to be maue by the Ninistei.

b. Seconu, the paiameteis of the piocess shoulu be piesciibeu in iegulations iathei
than in uepaitmental policy.

c. Thiiu, legislation shoulu make compliance with the piocess a teim anu conuition of
all licences. The manuatoiy natuie of the piocess shoulu not uepenu on whethei oi
not it is wiitten into the teims anu conuitions of specific licences. By "compliance
with the piocess" we iefei to the steps a licencee has to take to implement anu
conuuct the enviionmental monitoiing that is iequiieu by the legislation anu the
iegulations. The iegulatoiy action to be taken in light of whatevei enviionmental
monitoiing ieveals about the enviionmental peifoimance of the site woulu go to the
compliance of the site with its enviionmental peifoimance obligations iathei than
to its compliance with the iequiiement to conuuct enviionmental monitoiing.

u. Fouith, the iesponsibility foi monitoiing compliance with the enviionmental
monitoiing piocess shoulu be tiansfeiieu to the Bepaitment of Enviionment to
impiove public confiuence in the inuepenuence anu objectivity of the oveisight that
goveinment biings to beai on inuustiy's compliance with the ENP. This is New
Biunswick's appioach anu we think it is one that shoulu be auopteu in Nova Scotia.
This will mean that capacity anu expeitise will have to be built up in the Bepaitment
of Enviionment. To some uegiee, this coulu cause some of the pioblems of multiple
iegulatois anu of uiviuing iesouices between two uepaitments that leau us to
concluue that geneial iegulatoiy iesponsibility shoulu not be tiansfeiieu fiom
Fisheiies anu Aquacultuie. We think these issues will be manageable howevei if the
tiansfei of iesponsibility is limiteu to the ENP. In auuition, the avoiuance of these
issues is not impoitant enough to outweigh the impoitance to the whole iegulatoiy
piocess of the cieuibility anu tiustwoithiness of the ENP.

e. Fifth, the iegulatoiy monitoiing of compliance of opeiatois with the ENP has to be
stiengtheneu. Theie neeus to be moie auuiting of compliance. The auuiting piocess
neeus to incluue ianuom unannounceu auuits. Biiectly oi thiough contiacteu thiiu
paities who aie inuepenuent of inuustiy, iegulatois neeu to moie fiequently collect
theii own samples foi analysis anu again, this neeus to be peiiouically uone on an
unannounceu ianuom basis subject only to the auvance notice that is iequiieu to
auuiess biosecuiity conceins.

46
f. Sixth, iesults fiom the ENP foi each site neeu to be available to the public in a timely
mannei. Iueally, this woulu be uone by posting iesults to a common goveinment-
contiolleu web site.
We weie uigeu to also iecommenu an expansion of the scope of the ENP. Specifically, it was
suggesteu that the ENP shoulu monitoi heavy metal levels in auuition to sulphiue levels. We have
concluueu we aie not able to make such a iecommenuation piimaiily because of the uiffeient views
we heaiu about its cost anu feasibility as well as its usefulness. We uo howevei think that
expansion of the enviionmental monitoiing piocess waiiants fuithei consiueiation. In the
meantime, we have maue iecommenuations elsewheie in this uocument that will iequiie the
uischaige of heavy metals into the enviionment to be ieuuceu significantly.





















47
Pa @$,$($&%6 @$,#',%'1
0ui unueistanuing of the cuiient iegulatoiy fiamewoik is that theie aie a numbei of licensing
teims anu conuitions which go into eveiy oi most licences anu a numbei of leasing teims anu
conuitions that go into eveiy oi most leases. Theie aie, in othei woius, a numbei of stanuaiu teims
anu conuitions foi licences anu leases. We think that these stanuaiu teims anu conuitions shoulu
be set out in law to impiove the tianspaiency of the iegulatoiy fiamewoik anu geneial knowleuge
anu unueistanuing of the natuie anu iange of contiols that it places on the inuustiy. Two of the
most obvious ones woulu be:
a. The conuitionality of each licence on compliance with the Act anu iegulations anu
the teims anu conuitions of licence anu lease; anu

b. Compliance with the enviionmental monitoiing piocess.

In auuition, we think the following issues shoulu be auuiesseu in legislation (eithei in the Act oi the
iegulations maue unuei the Act):

)9 KU-*5,$*&# $& O,*#$,*# KM*) :&#'*$*&#1
It shoulu be a basic anu funuamental conuition foi the licensing of fin-fish aquacultuie
in a maiine setting that oxic conuitions can be anu have been maintaineu.
Su
This woulu
not mean that isolateu tempoiaiy failuies to meet oxic conuitions woulu waiiant
ievocation of a licence. It woulu howevei waiiant action to be taken to biing conuitions
back to the oxic level anu to be maintaineu theie on a consistent basis.
To ensuie oxic conuitions aie maintaineu anu that licence conuitions aie piopeily
calibiateu to achieve anu maintain that objective, theie shoulu be a legislative
iequiiement that teims of the licence will be ievieweu following the conclusion of each
giowing cycle to ensuie the site conuitions aie suitable foi anothei giowing cycle, anu
to ensuie appiopiiate aujustments aie maue to fallowing peiious, stocking uensity, anu
othei teims anu conuitions of the licence.
Wheie expeiience suggests that the uifficulty in maintaining oxic conuitions uoes not lie
with the opeiation of the licenseu opeiation oi with its compliance with iegulatoiy
iequiiements but iathei with the biophysical conuitions of the site, it shoulu be cleai
that the appiopiiate iegulatoiy iesponse is to iequiie iemoval of the opeiation fiom the
site oi its conveision to a kinu oi level of aquacultuie that is appiopiiate to the site. Foi
opeiatois who lose theii sites in such ciicumstances, the iegulatoiy fiamewoik shoulu
be committeu to make an alteinative anu appiopiiate site available to the opeiatoi.
This coulu be facilitateu by the pioactive iuentification by the BFA of "uieen Aieas" foi

30
lL was suggesLed aL Lhe 8oundLable LhaL anoLher or dlfferenL approach would be needed for bodles of waLer LhaL
were noL oxlc ln Lhelr naLural sLaLe. 1he 8ras u'Cr Lakes were glven as Lhe example.
48
fin-fish aquacultuie, using the piocess foi the stiategic assessment of coastal aieas
which we iecommenu below.

'9 D#$*C2&(-*#5 J/)3#&-&56
In maiine-baseu fin-fish aquacultuie, nets anu othei equipment must be iegulaily
cleaneu to pievent the builu-up oi peisistence of mateiials such as fish waste oi
uneaten foou that can cause uisease to both fiameu anu wilu fish. 0ne of the methous of
anti-fouling cuiiently useu is to spiay nets anu othei equipment with anti-fouling
substances that contain coppei anu othei heavy metals. We heaiu howevei that the
inuustiy is in the piocess of tiansitioning to mechanical cleaning technology.
Coppei is a toxic substance anu its ielease into the maiine enviionment shoulu be
minimizeu anu iueally avoiueu. To acceleiate the tiansition alieauy taking place in the
inuustiy towaius anti-fouling methous that avoiu the ielease of coppei anu othei toxins
into the enviionment anu to ensuie the inuustiy in Nova Scotia opeiates at the leauing
euge of enviionmental piotection piactices, we iecommenu that Nova Scotia's
iegulatoiy fiamewoik shoulu piohibit the use of any substance oi methou of anti-
fouling that iesults in the uispeisal of coppei, othei heavy metals oi chemicals into the
enviionment.

/9 Q,6 O,#,5/0/#$
We heaiu a vaiiety of peispectives on bay management. It seems that bay management
has been an effective tool in some juiisuictions, such as New Biunswick, to manage
uisease anu pest outbieaks. At the same time, we have heaiu that bay management
appioaches have cieateu challenges foi smallei opeiatois, contiibuting to the
consoliuation of the inuustiy in some juiisuictions. Fuitheimoie, a numbei of
paiticipants in oui piocess have expiesseu the view that the inuustiy in Nova Scotia is
cuiiently not sufficiently concentiateu to waiiant a laige-scale application of bay
management.
In light of these views anu consiueiations, we have come to the conclusion that a wiue
scale application of bay management in Nova Scotia is not waiianteu at this stage of the
inuustiy. Bowevei, it woulu seem piuuent to expeiiment with bay management in
aieas that aie paiticulaily suitable foi pilots, such as bays with multiple opeiatois anu
multiple giow out sites.
It is impoitant to note that bay management is a tool to achieve alignment between the
assimilative oi caiiying capacity of a bay anu the aquacultuie opeiations that aie
licenseu to take place in that bay. Whethei oi not it is feasible oi appiopiiate to seek
this alignment thiough a compiehensive bay management appioach in Nova Scotia,
what is ciitical to the iegulatoiy fiamewoik is that it insist upon the alignment. Wheie
bay management cannot be useu to achieve this coie objective, othei means anu
methous must be useu.
49
It is also impoitant to note that fiom eveiything we heaiu, we unueistanu that fallowing
is ciitical whethei oi not it is combineu with oi uone thiough compiehensive bay
management.

29 @$,#',%' 4/=&%$*#5 KU-*5,$*&#1 2&% .,)3 >*#' &2 DE(,)(-$(%/L "#)-('*#5 &# $3/
+&--&7*#5 O,$$/%1 2&% +*#C2*13 DE(,)(-$(%/R

Escapes
Fish moitality events anu levels;
Bamage to equipment;
Non-compliant monitoiing iesults;
Bisease outbieaks;
0se of peimitteu tieatments to auuiess uisease oi sea lice;


59 @$,#',%' 4/E(*%/0/#$ 4/5,%'*#5 D))&00&',$*&# &2 S,H*5,$*&#
We iecommenu that the legislation iequiie eveiy lease to incluue a "navigational
channel" foi boateis, which woulu be in auuition to a moie geneial "licensing piinciple"
that navigation be accommouateu. As uiscusseu latei in this uocument, this is the
appioach followeu in Piince Euwaiu Islanu to avoiu conflict between aquacultuie anu
othei useis of coastal wateis.

39 K$3/% @$,#',%' J/%01
The legislation shoulu cleaily specify the matteis that have to be auuiesseu in the teims
anu conuitions of each licence anu lease. These manuatoiy items woulu incluue but not
be limiteu to teims anu conuitions on the following matteis:

i. Species to be giown;
ii. Stocking uensity;
iii. Buiation of lease anu licence;
iv. Any specific opeiational pioceuuies anu technologies that have been
iuentifieu uuiing the iegulatoiy ieview piocess as ieuucing the
enviionmental impact of the opeiation; anu
v. Cleai iules foi use of meuication anu pest contiol piouucts.



30
PP 4/5(-,$&%6 J%,#1=,%/#)6

Lack of tianspaiency about the iegulatoiy piocess anu its opeiation in geneial anu in ielation to
specific sites was a fiequently voiceu concein in oui piocess. At the Rounutable, theie was
qualifieu appioval foi the following iecommenuation: "All licence application infoimation
peitaining to enviionmental impact anu impacts on othei maiine iesouice use anu useis shoulu be
maue publicly available".
S1
Foi membeis of the Rounutable who qualifieu theii suppoit foi this
iecommenuation, the concein was piotection of confiuential business infoimation.
In auuition to conceins about the cuiient lack of tianspaiency anu openness, we heaiu quite a bit
about the positive value of tianspaiency anu openness in contiibuting to the effectiveness of
iegulation. We heaiu that it is ciitical to maintaining the iegulatois inuepenuence of the iegulateu
sectoi. In othei woius, it ieuuces the uangei of iegulatoiy captuie. We heaiu that tianspaiency
helps to ensuie the answeiability of iegulatois foi theii choices anu actions, to iegulateu
businesses as well as to the public, incluuing those who benefit most uiiectly fiom iegulation. We
heaiu that tianspaiency impioves unueistanuing of the iegulatoiy piocess by the public as well as
the iegulateu sectoi, helping each to contiibute positively to iegulatoiy success. In this iegaiu, a
numbei of people expiesseu the view that gieatei tianspaiency is a goou thing foi iegulatois who
iegulate effectively anu foi businesses that comply as it uemonstiates that iegulation woiks anu
makes it uifficult foi ciitics to unfaiily poitiay the iegulatoiy piocess in an inaccuiate negative
light. Nost of these suggesteu benefits of tianspaiency in iegulation finu suppoit in the iegulatoiy
oi public auministiation liteiatuie.
In auuition, it is impoitant that cuiient uistiust anu lack of confiuence in the iegulation of
aquacultuie in Nova Scotia stems fiom the peiception that the cuiient piocess is not tianspaient
anu open. Foi a new iegulatoiy fiamewoik to enjoy a positive level of tiust anu confiuence, it must
be uefineu by tianspaiency anu openness.
Tianspaiency shoulu stait by ensuiing that compiehensive anu easy-to-unueistanu infoimation on
the iegulatoiy fiamewoik is ieauily accessible to anyone who wants it. This will auuiess the ieal
fiustiation anu iiiitation we heaiu fiom many, incluuing some in the inuustiy, about the uifficulty
they hau expeiienceu in obtaining cleai infoimation about matteis such as the steps in the
iegulatoiy piocess, the obligations of applicants foi leases anu licences anu of opeiatois once
licenseu, theii oppoitunities to paiticipate in the iegulatoiy piocess anu the actions the BFA can oi
will take to ensuie compliance with the iegulations.
The uifficulty people expeiience getting basic infoimation on these anu on othei aspects of
iegulation is one moie factoi unueimining confiuence in the cuiient iegulatoiy piocess. It
contiibutes to the impiession people have that infoimation is withhelu anu only pioviueu when the
iight questions aie askeu. It appeais to iesult in uiffeient people being given uiffeient infoimation
uepenuing on who they ask.

31
See page 14 of Lhe llnal 8oundLable 8eporL. Also, Lhe 8oundLable gave quallfled supporL Lo a slmllar
recommendaLlon LhaL, All LnvlronmenLal MonlLorlng rogram daLa should be made publlcly avallable on a
webslLe ln a Llmely manner." (8oundLable llnal 8eporL, page 29)
31
It shoulu be iecognizeu that some of the uifficulties being expeiienceu in this iegaiu may ieflect the
numbei of iegulatoiy agencies involveu in the iegulation of aquacultuie anu the appiopiiately
vaiiable natuie of the iegulatoiy piocess. Some of the fiustiation may also be causeu by the
piobability that not eveiyone who woiks foi the BFA oi in the inuustiy have all of the same
infoimation on the iegulatoiy piocess.
Neveitheless, we think that much moie can be uone to make infoimation on the iegulatoiy piocess
anu how it woiks ieauily available to the public, incluuing thiough the BFA's website. Foi example,
the BFA shoulu woik with othei piovincial anu feueial iegulatois to piouuce a single shaieu
uocument that compiehensively uesciibes anu explains the entiie iegulatoiy piocess as it woiks in
Nova Scotia. It coulu woik with the Regulatoiy Auvisoiy Committee which we iecommenu, on
impioving anu bettei uisseminating infoimation about the iegulatoiy piocess. It shoulu woik with
the netwoik of coastal community oiganizations that now exist with an inteiest in aquacultuie to
ensuie that goou anu compiehensive infoimation on the iegulatoiy fiamewoik anu its opeiation is
iegulaily shaieu thiough that netwoik.
We also think that the BFA neeus to ensuie that BFA employees have a consistent level of
knowleuge as to how the iegulatoiy piocess is stiuctuieu anu opeiates. The BFA also neeus to
ensuie that BFA staff aie manuateu to shaie that knowleuge in theii uealings with those they
inteiact with in the couise of theii jobs. Insteau, oi in auuition, the BFA coulu ensuie that questions
about the iegulatoiy piocess aie consistently fielueu by the same membeis of staff, an appioach
that has been taken by othei iegulatoiy agencies.
Tianspaiency anu openness neeus to extenu beyonu geneial infoimation about the iegulatoiy
piocess. It neeus to also be the iule in the application of the iegulatoiy fiamewoik to each
application foi a lease anu a licence anu to the BFA's ongoing oveisight of each appioveu opeiation.
As neaily as possible, the objective shoulu be to make application of the iegulatoiy fiamewoik an
open book.
In keeping with the spiiit of the iecommenuation that ieceiveu qualifieu suppoit at the Rounutable,
we theiefoie iecommenu that the basic piinciple shoulu be that infoimation that is ielevant to
unueistanuing the opeiation anu effectiveness of the iegulatoiy piocess as it applies to each
pioposeu anu appioveu site shoulu be infoimation that is ieauily available to the public. This
piinciple shoulu be set out in legislation to ensuie it is binuing on the BFA anu to ensuie that public
access to infoimation coveieu by the piinciple uoes not iequiie the making of an application unuei
the Fieeuom of Infoimation anu Piotection of Piivacy (F0IP0P) piocess.
Infoimation that is tiuly confiuential business infoimation shoulu be excluueu fiom this piinciple
unuei a uefinition of confiuential business infoimation set out in the legislation. But the
assumption shoulu be that infoimation is public infoimation unless a iegulateu business cleaily
establishes it is confiuential business infoimation within the scope of the statutoiy uefinition. In
othei woius, the onus to show that infoimation shoulu be kept confiuential in the hanus of the BFA
because of its confiuential business natuie shoulu lie with the business that claims it is confiuential
business infoimation.
32
We uo not have the infoimation we woulu neeu to give piecise auvice on how confiuential business
infoimation shoulu be uefineu. The uefinition shoulu howevei be a naiiow anu piecise one, as
otheiwise the exception might become the iule. In that scenaiio, legislative piovisions intenueu to
iequiie anu enable tianspaiency anu openness might then enu up being a legal baiiiei to
tianspaiency anu openness. The concept that shoulu guiue the uiafting of the uefinition of
confiuential infoimation is that infoimation is confiuential to a business wheie on a iealistic view,
its ielease coulu expose the business oi associateu businesses economic haim.
We anticipate that uiscussion of this appioach to limiting the infoimation that can be withhelu
because of business confiuentiality will iaise the question of whethei companies will be able to
withholu infoimation of the kinu anu quantity of antibiotics that aie useu in fish feeu. The use of
antibiotics is one of the significant issues of contioveisy in ielation to maiine-baseu fin-fish
aquacultuie. We weie tolu by people in the inuustiy anu by knowleuge expeits on the inuustiy that
the use of antibiotics is limiteu anu ueclining. We weie also tolu that ieleasing infoimation on
antibiotics woulu allow competitois to figuie out the feeu foimula being useu, which is iegaiueu as
piopiietaiy infoimation in the inuustiy.
We also anticipate that anothei issue will be the concein of inuustiy that open tianspaiency on
infoimation peitaining to fish health will auveisely affect competitiveness anu maiketing by
cieating the false impiession that fish faimeu in Nova Scotia aie susceptible to illness while those
faimeu elsewheie aie not.
We aie not uismissive of these conceins. Bowevei, we aie stiongly of the view that the cuiient
appioach unueimines tiust anu confiuence in the inuustiy, the BFA anu the iegulatoiy piocess.
The inuustiy's social licence anu its ability to iesponu to anu auuiess conceins suffeis in
consequence.
Bowevei confiuential business infoimation is uefineu anu piotecteu, we think the piinciple of
tianspaiency anu openness shoulu geneially apply to the piocess of applying foi a lease anu licence
oi foi a vaiiation oi ienewal of a lease oi licence. As a geneial piinciple anu subject only to the
piotection of infoimation that is cleaily uemonstiateu to be confiuential business infoimation, the
BFA's file on each application shoulu be one that is open anu accessible to membeis of the public.
The intent woulu be to make the infoimation pioviueu by the applicant anu all of the infoimation
pioviueu in iespect of the application by thiiu paities open to public sciutiny. It woulu also be to
make all of the uocumentation geneiateu in the BFA as pait of its assessment of an application pait
of the public iecoiu of the application. The conclusions ieacheu on the application, anu the ieasons
foi those conclusions, shoulu also be "on the iecoiu". The same woulu apply to the consiueiation
anu uecision of any appeal to the Ninistei that follows fiom a uecision on a licence oi lease.
Similaily, once a lease anu licence aie issueu, the ongoing application of the iegulatoiy fiamewoik
to the appioveu opeiation shoulu, as neaily as possible, be an open book. Subject to the piotection
of infoimation that is establisheu to be confiuential, all of the uata, infoimation anu iepoits that the
opeiatoi is iequiieu by the legislation, by the teims anu conuitions of its licence oi by oiuei of an
33
inspectoi to submit to the BFA oi to the Bepaitment of Enviionment
S2
shoulu be accessible to the
public. Likewise, all uocumentation ielating to the monitoiing by the BFA of compliance with the
iegulatoiy fiamewoik oi to actions taken by the BFA to ensuie compliance oi to enfoice the
iegulations woulu become pait of the file of mateiial available to the public. This woulu incluue a
copy of all inspection iepoits anu any waining letteis oi oiueis wiitten to auuiess instances of non-
compliance. The publicly available infoimation shoulu also incluue all uocumentation peitaining to
complaints ieceiveu about an appioveu opeiation anu the action taken by the BFA in iesponse to
the complaint.
The objective of oui iecommenuations is a level of tianspaiency anu openness that woulu allow a
membei of the public to ieauily asceitain the status of an application foi a lease anu licence (oi foi
a change oi ienewal of a lease anu licence) oi the stanuing of an appioveu opeiation ielative to its
iegulatoiy iesponsibilities at any given time. We iecognize that implementation of such a high level
of tianspaiency anu openness coulu uiveit iesouices away fiom iegulation anu into pioviuing
infoimation about iegulation. We also iecognize that this level of openness anu tianspaiency can
inhibit the open flow of infoimation between iegulatois anu iegulateu anu among iegulatois in
ways that can be haimful to iegulatoiy effectiveness. Neveitheless, we think the level of
tianspaiency anu openness we have pioposeu is what is calleu foi.
Fiist, what we have heaiu fiom Nova Scotians leaus us to concluue that it will be essential to the
tiust anu confiuence they place in any new iegulatoiy fiamewoik that it opeiate unuei conuitions
of high tianspaiency anu openness. We woulu go so fai to say that of all that must be fixeu with the
cuiient iegulatoiy fiamewoik fiom a community peispective, this one is a pie-conuition foi the
othei impiovements to be accepteu, effective anu woithwhile. In fact, the level of tianspaiency anu
openness we aie pioposing is an essential compliment to othei paits of the fiamewoik we have
pioposeu. Foi example, oui iecommenuation that iegulatoiy iesponsibility iemain piimaiily with
the BFA assumes that the BFA will opeiate unuei the veiy high level of tianspaiency anu openness
that we have iecommenueu heie. We woulu ieconsiuei this anu othei iecommenuations if this
assumption was mistaken.
Seconu, oui analysis of the iegulatoiy fiamewoik in othei juiisuictions leaus us to concluue that a
high level of iegulatoiy tianspaiency anu openness has been a coie featuie to the iefoims auopteu
in iecent yeais in othei juiisuictions, incluuing Scotlanu anu Naine. These weie the two
juiisuictions most fiequently citeu to us as mouels by those who weie geneially in favoui of
significant change in how aquacultuie is now iegulateu in Nova Scotia. Noie bioauly, most of the
iegulatois we spoke to in oiuei to leain about theii iole in the iegulation of aquacultuie
emphasizeu the impoitance of tianspaiency anu openness, even if they uiu not woik in iegulatoiy
systems that have gone as fai as Scotlanu anu Naine have gone to make tianspaiency anu openness
into opeiational ieality.
Thiiu, although we aie not uismissive of the auministiative conceins about uiveision of iesouices
anu baiiieis to the flow of infoimation, we think these issues can be manageu. If iesouices aie put
into the cieation of goou systems that make tianspaiency anu openness stanuaiu opeiating

32
1hls assumes accepLance of our recommendaLlon LhaL Lhe admlnlsLraLlon of Lhe LnvlronmenLal MonlLorlng
rogram should be moved Lo Lhe ueparLmenL of LnvlronmenL.
34
pioceuuie, incluuing infoimation systems that make goou use of technology, the ongoing uiveision
of iesouices can be mitigateu. As to conceins that high levels of tianspaiency anu openness will
inhibit the flow of infoimation, oui expeiience suggests that this is often less of a pioblem foi
auministiative systems than people iesponsible foi those systems assume it will be. Paiticipants
in the iegulatoiy piocess will aujust theii behavioui anu inteiactions to ieflect the awaieness that
they aie paiticipating in a piocess of public auministiation to which high stanuaius of tianspaiency
anu openness aie applicable. When this happens, the benefits that can flow fiom tianspaiency anu
openness will outweigh any challenges it cieates.
Finally, because the iegulation of aquacultuie is a piocess of public auministiation ielating to the
use of public iesouices by piivate businesses, it shoulu be conuucteu unuei high stanuaius of
tianspaiency anu openness so that it can be helu accountable by Nova Scotians.




















33
PW ;%&H*1*&#1 &# DE(,$*) D#*0,- X/,-$3 ,#' N/--U/*#5

The conuitions unuei which fin-fish facilities opeiate, fiom site selection to stocking uensity to
specific uesign anu maintenance iequiiements, shoulu be uesigneu with fish health as a piioiity
objective. It was suggesteu to us on a numbei of occasions that ensuiing the health of faimeu fish is
the veiy best way to eliminate oi gieatly ieuuce the enviionmental impacts of fin-fish aquacultuie
that give iise to the gieatest concein. It was also suggesteu that fish health is ciucial to the
piouuctivity of the Nova Scotia inuustiy as well as to its ieputation in the maiket anu thus to its
competitiveness compaieu to the aquacultuie inuustiy in othei juiisuictions.
At the Rounutable, theie was only paitial suppoit foi the iecommenuation that,

"The Piovince shoulu uevelop an appiopiiate piotocol to auuiess all aspects of fish health
anu shoulu ensuie appiopiiate expeitise is involveu. Fish with iepoitable uiseases shoulu
be iemoveu fiom ocean pens as soon as possible. No giow-out shoulu be peimitteu.
Baivesting contiols shoulu be instituteu until the site has been ueclaieu fiee fiom the
specific pathogen."

Bowevei, the ieseivation expiesseu by some Rounutable membeis was not with the iuea of a
compiehensive appioach to fish health. Rathei it was with the piesciiptiveness of the
iecommenuation on how that shoulu be uone in all cases. In paiticulai, ieseivation was expiesseu
with an absolute obligation to iemove all fish with a iepoitable uisease fiom the watei. Theie was
also concein to ensuie that this iecommenuation was maue in the context of maiine-baseu faiming
anu woulu not be applicable to shell-fish opeiations.

In oui view, the focus of the iegulatoiy fiamewoik on fish health anu well-being shoulu uefinitely
be on the outcomes iathei than on the specific mechanisms to be useu to achieve those outcomes.
The goal shoulu be to uesign anu opeiate fish giowing opeiations that giow healthy fish, fish that
nevei oi veiy iaiely iequiie meuication oi pest contiol tieatment, anu that have the lowest
moitalities in the inuustiy. We unueistanu that it may take some time to ieach this iueal. It is
impoitant, howevei, that eveiy pest oi uisease outbieak be tieateu as a leaining oppoitunity to
ieflect on the conuitions unuei which fish aie giown in these facilities to impiove those conuitions
to impiove fish health. This will incluue leaining about appiopiiate veisus inappiopiiate sites,
leaining about appiopiiate stocking uensities anu species at given sites, leaining about baiiieis to
minimize uisease tiansfeis fiom wilu to faimeu fish, etc.

PW9P +*13 X/,-$3
Cuiiently the N00 between the BFA anu the BF0 says that Nova Scotia will have ". the leau iole in
fish health management anu extension woik anu in intia-piovincial suiveillance, uetection,
pievention, contiol, anu iegulation of fish uiseases in cultuieu stock".
36
The legislative founuation foi the BFA's woik in aquatic animal health is limiteu. It incluues of
section S of the Aquacultuie Licensing Regulation, which iequiies licencees to maintain accuiate
iecoius on "the piesence of uiseases", "the type anu amount of foou useu in ielation to aquacultuial
piouuce" anu "the type of meuication, uosage, tieatment uate, anu uuiation of veteiinaiian
tieatments". It also incluues section 9 which says, "The Piovincial Fish Bealth veteiinaiian may
isolate, quaiantine, oiuei tieatment foi, iestiict the movement of, oi uestioy cultuieu fish infecteu
oi thought to be infecteu with a uisease that the Piovincial Fish Bealth veteiinaiian consiueis a
significant iisk to wilu oi cultuieu fish stocks".
The BFA's cuiient piogiam in fish health has foui components: uisease suiveillance; the piovision
of veteiinaiy seivices; emeigency seivices (wheie theie is unexpecteu oi elevateu moitality oi
abnoimal behavioui); anu laboiatoiy seivices to the inuustiy. The BFA acts piimaiily as an auvisoi
to opeiatois. It pioviues auvice on opeiational impiovements to impiove fish health, on tieatment
of uisease anu on pievention. These auvisoiy seivices aie unuoubteuly an impoitant benefit to the
inuustiy. They also fostei a ielationship of coopeiation between the Piovincial Fish veteiinaiian
anu opeiatois, which the veteiinaiian uses to enhance the inuustiy's unueistanuing of anu
iesponse to health pioblems affecting the sectoi.
The BFA's appioach also has a iegulatoiy component unuei sections S anu 9 of the iegulations. A
key question is whethei the BFA neeus to inciease its iegulatoiy activity in ielation to animal
health in aquacultuie. An associateu question is whethei this coulu oi shoulu be uone while
maintaining the auvisoiy appioach that is cuiiently the focus foi the Piovincial Fish veteiinaiian.
These questions aiises out of concein that the iigoui of an expanueu iegulatoiy iole might be
compiomiseu if piovincial veteiinaiians aie the pioviueis of veteiinaiian seivices to those they aie
supposeu to also iegulate. Conveisely, theie is a concein that the effectiveness of the auvisoiy
seivice in gaining the coopeiation of the inuustiy in auuiessing fish health will be compiomiseu if
the auvisoiy seivice is pioviueu by veteiinaiians who also weai a iegulatoiy hat.
In oui view, theie is ieally no uoubt that the iegulatoiy fiamewoik neeus to ueal much moie
expansively anu in much gieatei uetail with the health of animals iaiseu in aquacultuie. Some of
the most peisuasive piesentations we ieceiveu aigueu that the key to aquacultuie's futuie as a
sustainable inuustiy which enjoys social licence was a focus on the health anu well-being of faimeu
animals. All of these piesentations, which weie maue fiom a iange of peispectives, iecognizeu that
the health of the animals being iaiseu in aquacultuie was the ultimate anu funuamental baiometei
of whethei aquacultuie was oi was not being conuucteu in haimony with its suiiounuing
enviionment. Put simply, healthy fish mean the health of the suiiounuing enviionment is being
maintaineu while sick fish suggest the opposite. Conveisely, the natuie anu extent of aquacultuie's
use of some of the piactices that iaise the most concein about aquacultuie's impact on the
enviionment uepenus veiy much on the health of the animals iaiseu in aquacultuie. When animals
aie healthy, utilization of these piactices can be ieuuceu oi eliminateu. When fish aie sick oi in
uangei of becoming sick, utilization of these piactices incieases.
Beie we cannot uesciibe the iegulatoiy piovisions we think aie neeueu in uetail. We limit
ouiselves to outlining the matteis that we believe shoulu be auuiesseu in these piovisions.
37
Fiist, it has to be unueistoou that the maintenance of health anu the pievention of uisease aie the
founuations of the pioposeu iegulatoiy fiamewoik. Although the piovisions we aie pioposing to
ueal specifically with fish health woulu ueal with fish health moie extensively anu explicitly than
the cuiient iegulatoiy fiamewoik uoes, these elements of the fiamewoik aie seconuaiy to those
which aie intenueu to keep faimeu fish healthy in the fiist place. Among the elements of the
pioposeu fiamewoik that have fish health as one of theii funuamental objectives aie those uealing
with the following issues:
Biophysical site conuitions that make a site suitable foi a paiticulai opeiation;
Conuitions on numbei of fish on site anu on peimitteu stocking uensities;
Fallow peiiou iequiiements;
The mixing of species on sites;
Limits on the numbei of anu sepaiation between peimitteu faims in paiticulai bays;
Cooiuination of piouuction on sites within uefineu geogiaphic aieas; anu
vaccination iequiiements.
In auuition to all of the pieventive measuies, the iegulations shoulu ueal moie compiehensively
anu explicitly than the cuiient legislation uoes with the manuatoiy iepoiting of notifiable uiseases.
They shoulu set out the uiseases of concein to the piovince that must be iepoiteu to the BFA if
iuentifieu by labs, faimeis, veteiinaiians anu anyone in the caie anu contiol of the animals
suspecteu to have the uisease. The iegulations shoulu cleaily state the time-fiame within which
notification has to be given once the eviuence of a notifiable uisease is uetecteu. Theie shoulu be
cleai penalties stateu foi bieach of iepoiting obligations anu vigilant enfoicement of the
obligations, incluuing thiough piosecution.
The iegulations shoulu explicitly auuiess the elements of the uisease suiveillance system. They
shoulu outline the type, fiequency, lots anu numbeis of animals to be sampleu anu uefine the tests
to be useu foi uetecting the uiseases of concein.
The iegulations shoulu also ueal moie compiehensively with management of uisease outbieaks.
We uiscuss the inuustiy's capacity to manage uisease outbieaks in gieatei uetail below. Beie, oui
focus is on the iesponsibilities anu associateu authoiity of the iegulatoi. In oui view, the iegulatoiy
fiamewoik shoulu uefine what constitutes a confiimeu positive. They shoulu give bioau poweis to
iegulatois to: access iecoius; seize anu test animals fiom at-iisk populations; tiace pathogen
movements fiom anu to faims; anu to isolate, quaiantine, tieat oi uestioy uiseaseu fish oi fish
suspecteu to be uiseaseu oi in uangei of becoming uiseaseu. They shoulu impose oi authoiize
iegulatois to impose iequiiements foi biosecuie uisposal of infecteu fish anu mateiials anu foi
cleaning anu uisinfecting infecteu things anu places. Theie shoulu also be piovisions uealing with
fallowing, iestocking anu ietesting of sites aftei an outbieak of uisease leaus to uestiuction of
uiseaseu fish. The iegulations shoulu uefine bieaches of obligations in this aiea as punishable
offenses.
The iegulations shoulu contain piovisions on the biosecuiity pioceuuies to be followeu to pievent
the spieau of infectious uisease. These shoulu incluue piovisions on biosecuiity pioceuuies to be
followeu on aquacultuie sites, uuiing haivesting, uuiing tianspoit of animals anu in fish piocessing.
38
These pioceuuies shoulu covei peisonnel anu equipment, incluuing equipment such as well boats,
tiucks, giauing geai anu whaives useu in moving fish. The iegulations shoulu pioviue foi
biosecuiity compliance auuiting pioceuuies. Non-compliance with biosecuiity iequiiements
shoulu be uefineu to constitute an offence.
0nuei the iegulations, movement of animals to oi fiom a site shoulu be subject to a ceitificate of
health foi tiansfei. The iegulations shoulu set out the numbei of veteiinaiy site visits anu the types
of tests to be conuucteu befoie such a ceitificate can be issueu. Theie shoulu be bioou stock testing
iequiiements, iequiiements on iecoius management ielative to the movement of fish anu
manuatoiy iepoiting iequiiements ielative to tiansfeis.
The iole of the Piovincial Fish Bealth veteiinaiian (PFBv) has causeu us some uifficulty. 0n the
one hanu, the PFBv pioviues veteiinaiian seivices to the inuustiy. Be is, in effect, theii
veteiinaiian. This mouel is similai to the iole that piovincial veteiinaiians have playeu in the
agiicultuie sectoi. 0n the othei hanu, the BFA ielies on the PFBv in its application, inteipietation
anu enfoicement of iegulatoiy iequiiements ielating to fish health. If the iegulatoiy fiamewoik
becomes moie extensive anu explicit on fish health, as we iecommenu it shoulu, this ieliance is
likely to become moie impoitant to the BFA. The peiceiveu conflict between the uual ioles of the
BFA that is a concein to many woulu seem to be at its highest in the multiple ioles uischaigeu by
the PFBv.
We can unueistanu that the iole of the PFBv as the veteiinaiian of the inuustiy enables the PFBv to
builu ielationships of tiust anu confiuence with the inuustiy that allows the PBFv to pioactively
iuentify anu auuiess issues befoie they become pioblems. In othei woius, we can unueistanu that
the uepenuency of the inuustiy on the PFBv pioviues the PFBv with consiueiable oppoitunity to
ensuie the inuustiy opeiates in accoiuance with the iegulations anu fish health best piactices. In
auuition, the cuiient position of the PFBv as the veteiinaiian of the inuustiy is unuoubteuly an
impoitant pait of the BFA's system of uisease suiveillance. A moie iegulatoiy iole foi the PFBv
may make ciucial suiveillance infoimation less available to the PFBv than is cuiiently the case. It
is also ielevant to the uiscussion that the PFBv caiiies out his oi hei manuate as a iegulateu
membei of the veteiinaiian piofession.
Foi these ieasons, we woulu not be comfoitable iecommenuing that the iole of the PFBv become
an exclusively iegulatoiy one. We aie howevei stiongly of the view that it can only continue to be a
seivice-pioviuei anu a iegulatoiy iole if oui iecommenuation on tianspaiency anu openness aie
auopteu anu if a system of inuepenuent thiiu-paity peiiouic ieview of the compliance of the
inuustiy with iegulatoiy iequiiements ielating to fish health is instituteu as pait of the iegulatoiy
fiamewoik.

PW9W +*13 N/-2,%/
0veilapping with the issue of fish health is the issue of the well-being of faimeu fish. 0nly one
peison spoke to us uiiectly on this concept but it was implicit in the concein that otheis voiceu
about the health of faimeu fish.
39
As unuei Nova Scotia's 6"$'*+ 3%&)(7)$&" 67), legislation on the well-being of faim animals typically
aims to ensuie they aie auequately caieu foi. This incluues ieceiving necessaiy veteiinaiian caie
anu piotection fiom neglect anu abusive tieatment. 0nuei the Nova Scotia Act, the uefinition of
"faim animal" incluues "fin-fish iaiseu in an aquacultuie site foi commeicial puiposes". 0ui
unueistanuing is that the Ninistei of Agiicultuie is uesignateu as the Ninistei iesponsible foi the
Act in its applicability to fin-fish. Among othei things, this makes the Ninistei iesponsible foi
investigations wheie faim animals may be in uistiess. It also gives the Ninistei the authoiity to
appoint inspectois to "caiiy on such activities anu exeicise such poweis as aie necessaiy oi
conuucive to pieventing, enuing oi iemeuiating uistiess to faim animals" incluuing by investigating
cases of faim animals in uistiess, piomoting the humane tieatment of faim animals anu foimulating
anu co-oiuinating the establishment of inuustiy customs anu coues of piactice suppoiting yhe
humane tieatment of faim animals.
This legislative fiamewoik is piimaiily if not exclusively conceineu with the pievention of neglect
anu abuse. This is an impoitant aspect of animal welfaie. It is not only coveieu by piovincial
animal welfaie legislation but by section 44S.1 anu 446 of the Ciiminal Coue.
It was pointeu out to us that theie have been no piosecutions unuei the 6"$'*+ 3%&)(7)$&" 67) (oi
the :%$'$"*+ :&/() foi violations in ielation to fish. This might iaise questions about whethei
existing legislation is being enfoiceu with sufficient uiligence anu iigoui. 0ui expectation, howevei,
is not that piosecutions shoulu be taken foi the sake of uemonstiating that the Act is being stiongly
enfoiceu. Insteau, oui concein woulu be that piosecution is not being consiueieu wheie it may be
waiianteu on the facts of paiticulai cases uue to a geneial view that the matteis auuiesseu in the
Act aie not seiious enough to waiiant piosecution. Actions shoulu be taken to ensuie that such an
attituue is not guiuing the auministiation of the Act anu that piosecution foi violation of the Act is
actively consiueieu wheie ciicumstances suggest it is the appiopiiate anu piopoitionate iesponse
to a situation of non-compliance.
In auuition, oui attention was uiawn to subsection 21(4) of the Animal Piotection Act, which says
that the piovisions of the Act that cieate the offence of causing uistiess to an animal uo not apply if
the uistiess is causeu by an activity caiiieu on "in accoiuance with ieasonable anu geneially
accepteu piactices of animal management, husbanuiy oi slaughtei oi an activity exempteu by the
iegulations". These woius aie not uefineu in the Act. They aie theiefoie left to be uefineu in the
auministiation of the Act. This can iesult in the woius being uefineu in ways that uo not accoiu
with the objectives of the Act, which is to pioviue animals with meaningful piotection against
tieatment that causes them uistiess.
A similai but bioauei concein is that the Act uefines uistiess in subsection 2(2) in quite geneial
teims. To some extent, this is unavoiuable anu uesiiable given the wiue iange of situations anu
ciicumstances the Act must covei. It uoes howevei mean that the Act pioviues limiteu guiuance
eithei to faimeis oi to iegulatois. In the case of fin-fish aquacultuie, the lack of guiuance may be
moie pioblematic given that the Act's uefinition of uistiess may apply moie stiaightfoiwaiuly to
teiiestiial animals than it uoes to aquatic animals. Foi example, the uefinition iefeis to auequate
watei, sheltei, ventilation anu "ieasonable piotection fiom injuiious heat oi colu". What these
paits of the uefinition iequiie may be easiei to ueteimine foi teiiestiial animals than it is foi
60
aquatic animals. Even theii applicability to fin-fish may be uoubtful, although by the woius of the
Act they aie as applicable to fin-fish as to othei kinus of faim animals.
Theie is a thiiu aiea of concein. Although the Act contemplates inuustiy customs anu coues of
piactice suppoiting the humane tieatment of animals, it is piimaiily about piotecting animals fiom
neglect anu abuse. It says little about the positive level of caie that animals aie to be pioviueu. All
it says in effect is that it must be above the level at which it woulu cause uistiess.
We concluue that the iegulatoiy fiamewoik shoulu moie cleaily uefine the animal welfaie
stanuaius that aie iequiieu in fin-fish aquacultuie. It shoulu uo this at thiee levels:
Fiist, by outlining the animal welfaie stanuaius that shoulu geneially be met anu
maintaineu in aieas such as (a) watei quality, (b) stocking levels, (c) feeuing iates,(u) cage
uesign, constiuction anu maintenance anu (e) geneial husbanuiy;
Seconu, by bettei uefining uistiess (i.e. neglect) as it applies to fin-fish aquacultuie; anu
Thiiu, by bettei uefining what piactices of animal management, husbanuiy anu slaughtei
will be iegaiueu as "ieasonably anu geneially accepteu" in aquacultuie in Nova Scotia foi
the puipose of ueteimining the applicability of the statutoiy piovision which cieates the
offence of causing uistiess.
SS












33
Culdance as Lo how Lhls can be done may be provlded by Lhe AquaLlc Anlmal PealLh Code developed by Lhe
World CrganlsaLlon for Anlmal PealLh. ChapLer 7 of Lhls Code deals wlLh Welfare of larmed llsh" and more
parLlcularly wlLh sLandards and pracLlces on Lhe welfare of farmed flsh durlng LransporL, ln Lhe sLunnlng and kllllng
of farmed flsh for human consumpLlon and ln Lhe kllllng of farmed flsh for dlsease conLrol purposes. We have also
been Lold abouL developmenLs ln new Zealand (whlch has adopLed an anlmal welfare code deallng speclflcally wlLh
commerclal slaughLer) and ln Lurope (where Commlsslon of Lhe Luropean Commlsslon has sald LhaL farmed flsh
are covered by Lu leglslaLlon on Lhe proLecLlon of anlmals durlng LransporL and aL Lhe Llme of kllllng).
61
PY ?*1/,1/ :&#$%&- ,#' O,#,5/0/#$ ;%&)/'(%/1 ,#' :,=,)*$6

In the pievious section, we maue iecommenuations on fish health anu fish well-being. A ielateu
issue is the iegulation of the inuustiy by the CFIA, which is iesponsible foi contiol of aquatic animal
uiseases as pait of its bioauei manuate ovei the health of animals iaiseu foi human consumption.
To uischaige this manuate, the CFIA is in the piocess of implementing the National Aquatic Animal
Bealth Piogiam.
The CFIA auministeis a list of iepoitable uiseases. Wheie one of these uiseases is uetecteu in
faimeu aquatic animals, it must be iepoiteu to CFIA. 0ui unueistanuing is that this obligation
applies to the faimei, the veteiinaiian who monitois the health of the faimei's animals, anu to the
laboiatoiy at which samples fiom the faimei's animals aie testeu foi uisease. 0ui fuithei
unueistanuing is that the BFA opeiates a system of suiveillance foi iepoitable uiseases as pait of
the veteiinaiy seivices it pioviues to the inuustiy. This iole of the BFA appeais to be contemplateu
by its N00 with the BF0, which hau the feueial manuate to contiol aquatic animal uiseases befoie
it was tiansfeiieu to CFIA.
The uiseases on the list of iepoitable uiseases incluue those that have been ueteimineu by
inteinational agieement to be uiseases that all countiies shoulu contiol. The goal of the
inteinational agieement is to pievent the spieau of aquatic uisease thiough tiaue in the piouucts of
aquacultuie. It uoes this by iequiiing each countiy to contiol the uiseases that aie agieeu to be
uiseases of concein. The othei goal of the inteinational agieement is to piotect inteinational tiaue
in the piouucts of aquacultuie. It uoes this by peimitting tiaue to take place on the assumption that
all countiies paity to the agieement aie contiolling the uiseases that all countiies iegaiu as
uiseases of concein. In othei woius, it allows tiaue to take place on the assumption that
aquacultuie piouucts fiom paiticipating countiies aie safe. This avoius oi at least minimizes the
alteinative scenaiio unuei which each countiy woulu ueciue foi itself whethei the aquacultuie
piouucts of othei countiies weie safe foi impoitation.
The inteinational agieement iequiies paiticipating countiies to oiuei the uestiuction of aquatic
animals wheie it is ueteimineu that this is necessaiy to contiol the spieau of a iepoitable uisease.
0nuei Canauian legislation, the authoiity to oiuei uestiuction of uiseaseu fish is exeiciseu by the
Ninistei iesponsible foi the CFIA. Wheie the Ninistei exeicises this authoiity, this legislation
iequiies the CFIA to compensate the giowei of the fish that aie uestioyeu.
We heaiu a high level of angei about the compensation that CFIA pays when the Ninistei oiueis the
uestiuction of faimeu fish, something that has happeneu anu attiacteu a lot of meuia attention in
Nova Scotia in iecent yeais.
S4
Foi many, this is using taxpayei money to iewaiu faimeis foi the
bau piactices that alloweu theii fish to become uiseaseu in the fiist place. Similaily, many
expiesseu the view that if faimeis know they will be compensateu foi piouucing sick fish, they will

34
1here was quallfled approval by Lhe 8oundLable for a recommendaLlon LhaL, ubllcly funded compensaLlon for
caLasLrophlc loss relaLed Lo dlsease should noL be avallable excepL where Lhe effecL ls lndusLry-wlde or Lhe
compensaLlon ls oLherwlse requlred under lnLernaLlonal agreemenLs relaLlng Lo reporLable dlseases. (8oundLable
llnal 8eporL, page 26)
62
be content to make a piofit by piouucing sick fish anu collecting compensation aftei they aie
oiueieu uestioyeu insteau of taking the moie uifficult, expensive anu unceitain ioute of uoing what
has to be uone to piouuce healthy fish that can be solu foi a piofit on the maiket.
We unueistanu anu iespect the stiength with which these views aie helu. Neveitheless, we think
the iole of CFIA in compensating faimeis foi the fish it oiueis them to uestioy neeus to be put in
context. This context incluues the following points:
The obligation to compensate is iequiieu by inteinational agieements to which Canaua is a
paity;

The iationale foi the obligation to compensate is to minimize the iisk of gioweis failing to
iepoit iepoitable uiseases to avoiu the possibility of being oiueieu to have them uestioyeu.
This woulu be moie likely if they knew theie was no compensation foi uestioyeu fish oi if
compensation was not ceitain. The concein is that if gioweis weie subject to a financial
incentive to conceal iepoitable uisease the entiie system foi the contiol of uisease woulu be
less effective. Anothei concein is that Canauian aquacultuie piouucts woulu be moie
vulneiable to being excluueu fiom inteinational tiaue channels; anu

The system unuei which aquacultuie is compensateu foi fish uestioyeu by oiuei is similai
to the one unuei which faimeis can be compensateu foi animals they aie iequiieu to
uestioy foi uisease contiol puiposes.

We weie auviseu by CFIA officials that piovinces anu the aquacultuie inuustiy have been infoimeu
that the cuiient appioach to compensating foi loss uue to uisease is not sustainable anu that a
stiictei appioach will soon be implementeu. In futuie, oiueis to uestioy will not be issueu in
piovinces oi paits of piovinces ueclaieu by CFIA to be infecteu with the uisease in question. This is
because uisposal seives no uisease contiol puipose in such ciicumstances. With no oiuei to
uispose, theie will be no authoiity to pay compensation. We weie tolu that this appioach is
consistent with Canaua's inteinational obligations since Canaua only has inteinational contiol
obligations in ielation to paits of Canaua not ueclaieu as "infecteu".
This appioach may pioviue some assuiance to the public that wheie compensation is given it is
because it is seiving a public puipose anu not simply fixing a pioblem foi a faimei who loses fish.
Foi the public in piovinces oi aieas of piovinces wheie compensation is paiu, it may ieassuie that
the uisease which leaus to the uestiuction of fish is not enuemic in theii piovince oi aiea but
geneially unuei contiol.
Foi the inuustiy as well as piovincial goveinments, the implication of the new appioach is that they
must contiol the pievalence of uisease if they want to continue to have access to compensation
when uisease stiikes uespite best effoits to pievent it. Noie seiiously, they must effectively contiol
uisease if they wish to avoiu theii piovince oi pait of theii piovince being uesignateu as one in
which one oi moie iepoitable uiseases aie enuemic. If that happens, they will have lost much of
theii maiket as well as theii access to compensation.
63
The impenuing changes to the CFIA appioach ieinfoice the iationale foi all of the iecommenuations
we have maue which can play a iole in fosteiing, maintaining anu piotecting the health of faimeu
fish. In auuition, they show how impoitant it is foi inuustiy anu goveinment to have the capacity
to conuuct effective suiveillance foi uisease anu to effectively manage outbieaks when they occui
to ensuie that uisease uoes not become enuemic. 0ui unueistanuing of what we weie tolu by CFIA
officials is that CFIA was confiuent in the stiength of the suiveillance systems in Nova Scotia anu the
Naiitimes moie bioauly, anu with theii functioning. We unueistoou them to expiess less
confiuence in the ieauiness of the inuustiy in the iegion to manage outbieaks.
To illustiate, CFIA officials explaineu the uifficulties they have obseiveu in the hanuling of the
limiteu ISA events that have occuiieu. In the view of CFIA, necessaiy equipment was not ieauily
available oi ieauily piocuiable. Foi example, theie weie no boats in the iegion ueuicateu to this
function anu no aiiangements maue to take boats useu foi othei puiposes out of theii noimal
seivice to pievent cioss-contamination. Theie weie also no aiiangements maue in auvance foi
biosecuie access to uocks, which causeu unuue ieliance on lanu tianspoitation. Anothei kinu of
uifficulty was in iequisitioning the equipment neeueu to haivest uiseaseu fish. Anothei was the
unavailability of pie-appioveu uisposal sites. This iaiseu conceins about the tieatment that woulu
be applieu to the effluent fiom the ienueiing of uestioyeu fish. CFIA has also founu that the
expeitise neeueu to wiite the stanuaiu opeiating pioceuuies neeueu foi a iesponse plan anu
piocess was geneially not available.
CFIA officials expiesseu concein about an absence of uigency in auuiessing these gaps in capacity
anu ieauiness. They expiesseu concein that the coopeiation that woulu be neeueu to ensuie the
neeueu capacity anu infiastiuctuie is in place anu available to all is not eviuent, even though the
scale of the inuustiy is in theii view such that the neeueu capacity anu infiastiuctuie can only be
available if it is uevelopeu anu maintaineu on an inuustiy scale. We weie tolu this collective
appioach has been the appioach taken on the west coast wheie the inuustiy is much laigei anu is a
piimaiy ieason why the ieauiness to effectively manage uisease outbieaks is moie auvanceu on the
west coast than it is on the east coast.










64
PZ @*$/ @/-/)$*&# ,#' A$*-*B,$*&# 2&% +*#C2*13 DE(,)(-$(%/

PZ9P S,$(%/ ,#' 4,$*&#,-/ 2&% , :-,11*2*),$*&# @61$/0
We have been tolu thioughout the iegulatoiy ieview piocess by inuustiy, community membeis anu
othei stakeholueis that piopei site selection anu utilization is ciitical foi an effective iegulatoiy
fiamewoik foi maiine-baseu fin-fish aquacultuie.
SS
We agiee. A suitable site is one that has
appiopiiate biophysical conuitions while being compatible with othei economically, socially, anu
cultuially impoitant activities. 0sing language fiom EuSPA, it is a site that makes a net contiibution
to sustainable piospeiity anu that can be utilizeu in a mannei that maximizes benefits while
minimizing iisk anu negative impacts.
Biophysical conuitions in Nova Scotia aie uiffeient than in many othei juiisuictions with maiine-
baseu fin-fish aquacultuie opeiations. We have many geogiaphically piotecteu coastal wateis
aiounu Nova Scotia, anu aieas with stiong tiual cuiients, but we also tenu to have shallowei wateis
than othei juiisuictions anu watei tempeiatuies aie not always suitable. Wilu salmon populations
in Nova Scotia have tiauitionally hau economic anu social significance, but aie in a peiilous state. In
auuition, many of oui iuial communities have long-stanuing economic uepenuence on coastal
wateis foi theii livelihoous, laigely in teims of fishing anu touiism. Compatibility with othei uses of
coastal wateis anu social acceptance of the inuustiy aie theiefoie ciitically impoitant
consiueiations in site selection.
0nuei the cuiient iegulatoiy fiamewoik, the suitability of coastal aieas foi fin-fish aquacultuie is
ueteimineu laigely if not exclusively thiough the licensing piocess. This appioach may be
inefficient anu iesouice-intensive foi both inuustiy anu iegulatois. It may also leau to avoiuable
conflict to the extent it iesults in applications foi licences anu leases being maue foi sites that
woulu be iuentifiable as being geneially unsuitable if a moie geneial piocess of chaiacteiization
anu categoiization of the suitability of coastal aieas foi fin-fish aquacultuie was caiiieu out. In
auuition, too much ieliance on the licensing piocess to ueteimine the suitability of coastal aieas foi
fin-fish aquacultuie may leau to mistakes that coulu be avoiueu oi ieuuceu if the licensing piocess
was supplementeu by a moie geneial piocess of evaluation as the staiting point foi the licensing
piocess.
Following the appioach that is a cential to Scotlanu's ielatively new iegulatoiy fiamewoik, the
basic appioach we iecommenu is a piocess of pioactive evaluation of the coastline foi the puipose
of ueteimining whethei coastal aieas aie suitable, maiginally suitable oi geneially unsuitable foi
fin-fish aquacultuie. The iesult of this piocess woulu be a uesignation of coastal aieas as being

33
1he 8oundLable gave parLlal supporL Lo Lhe recommendaLlon LhaL, 1he regulaLory framework should esLabllsh
slLlng crlLerla Lo lnclude waLer depLhs, currenL flows, dlsLances from wlld flsherles and harvesL areas for lrlsh moss,
sea urchln, shellflsh eLc., dlsLances from salmon rlvers, mlgraLlon paLhs, flshlng grounds, oLher marlne resource
uses, naLural conservaLlon areas, and spaclng of aquaculLure slLes." (8oundLable llnal 8eporL, page 20)
63
eithei gieen, yellow oi ieu aieas foi the puiposes of fin-fish aquacultuie.
S6
In geneial teims, these
uesignations woulu have the following meaning:
1. uieen aieas woulu be aieas founu to be geneially suitable foi fin-fish aquacultuie;

2. Yellow aieas woulu be aieas that have potential to be suitable but aie not iueal anu
woulu iequiie a moie caieful appioach to site selection, a moie iigoious assessment in
the licensing anu leasing piocess, stiictei oi moie limiting teims anu conuitions foi
appioval anu auuitional iegulatoiy oveisight; anu

S. Reu aieas woulu be aieas that weie unlikely to be suitable foi fin-fish aquacultuie.

The basic iuea is that iegulatoiy appioval foi fin-fish aquacultuie woulu be unlikely in ieu aieas
anu less likely in yellow aieas than in gieen aieas. Whethei it woulu be given foi a site in a yellow
oi ieu aiea at all woulu uepenu on whethei the applicant foi a licence anu lease in a yellow oi ieu
aiea was pioposing a fin-fish opeiation that was suitable foi a site having yellow oi ieu aiea
chaiacteiistics. Foi example, a small-scale oi low-uensity opeiation might be suitable in a yellow
aiea wheieas a laigei-scale anu highei-uensity opeiation woulu not be. It woulu be less likely that
even small-scale anu low-uensity fin-fish aquacultuie woulu be founu suitable foi ieu aieas. But to
be suitable, it woulu have to be an opeiation that hau less impact than the opeiations that woulu be
suitable foi yellow aieas. Foi example, an opeiation that was smallei-scale anu lowei-uensity than
those suitable foi yellow aieas anu which also was iequiieu to opeiate unuei stiictei iegulatoiy
contiol might be suitable in some ieu aieas.
The staiting point foi consiueiing which of the thiee categoiies a coastal aiea of NS falls unuei
shoulu be the biophysical conuitions, such as watei uepth, cuiient speeu, oceanogiaphic anu
benthic ciiculation patteins, pioximity to salmon iiveis, etc. Social, cultuial, anu economic
implications coulu also be consiueieu in categoiizing Nova Scotia's coastal wateis baseu on its
suitability foi fin-fish aquacultuie, howevei, these consiueiations will featuie moie piominently in
the ieview of inuiviuual pioposals foi aquacultuie opeiations. Finally, oui unueistanuing of what
makes foi a suitable site will unuoubteuly evolve with science, changing conuitions as a iesult of
climate change, new technologies, changes in inuustiy piactice, changing maikets, anu the
inuustiy's evolving place in iuial communities. This means that the categoiization neeus to iemain
open to being aujusteu, but baseu on stiong, open anu tianspaient piocesses anu cleai ciiteiia. The
following sets out the ciiteiia we iecommenu foi the thiee categoiies.

PZ9W <%//# D%/,1
It is oui iecommenuation that uieen Aieas foi fin-fish opeiations in coastal wateis be ueteimineu
baseu on ciiteiia that incluue the following:

36
ln rudlmenLary form, a slmllar concepL ls currenLly provlded for ln Lhe !"#$%&"%# ()* +,(#-(. /%#,0&1%# 21-, whlch
glves Lhe MlnlsLer of llsherles and AquaculLure, wlLh cablneL approval, Lo deslgnaLe sub-aquaLlc lands as a closed
area . noL sulLable for aquaculLure".
66
o (A) Biophysical conuitions such as watei tempeiatuie, watei uepth, cuiient speeu,
fiequency anu othei hyuiological anu bottom conuitions show that fin-fish
aquacultuie can be conuucteu in the aiea with confiuence that it will meet oi exceeu
enviionmental stanuaius; anu

o (B) The absence of significant conflicts between fin-fish aquacultuie anu othei uses
oi values, such as:
! Inteifeience with the iecoveiy effoit of an enuangeieu species;
! 0navoiuable inteifeience with a cleaily competing use that is of significant
economic, social oi cultuial value; oi
! Pioximity to a salmon iivei oi to lanu that is unuei legal piotection.
PZ9Y b/--&7 D%/,1
Yellow Aieas woulu be coastal aieas wheie theie is ieason foi caution, but theie may still be
potential foi piouuctive anu low impact fin-fish aquacultuie pioviueu it is conuucteu on teims oi
subject to limitations which specifically auuiess the aiea's limiteu suitability foi fin-fish
aquacultuie. Conuitions that woulu iesult in an aiea being uesignateu as a Yellow Aiea woulu
incluue the following:
- (A) Biophysical conuitions showing (foi example) that a fin-fish aquacultuie shoulu not be
authoiizeu unless it is authoiizeu on teims anu conuitions (such as teims anu conuitions on
scale anu uensity) that auuiess the specific biophysical limitations of the aiea; oi
- (B) The piesence of significant potential conflicts between fin-fish aquacultuie anu othei
uses oi values that woulu have to be auuiesseu befoie aquacultuie coulu be authoiizeu oi
conuucteu, such as
o Inteifeience with a cleaily competing use that is of significant economic, social oi
cultuial value;
o A ieasonable feai that a fin-fish opeiation woulu inteifeie with the iecoveiy effoit
of an enuangeieu species;
o Pioximity to a salmon iivei oi to lanu that is unuei legal piotection; oi
- (C) Both the biophysical conuitions anu the potential foi conflict with othei significant uses
oi values inuicate the aiea is piopeily classifieu as a yellow aiea.

PZ9Z 4/' D%/,1
Reu Aieas woulu be coastal aieas consiueieu to be unlikely to be suitable foi any fin-fish
aquacultuie. Conuitions that woulu iesult in an aiea being uesignateu as a Reu Aiea woulu incluue
the following:
- (A) Biophysical conuitions showing that it is highly unlikely that fin-fish aquacultuie can be
conuucteu in the aiea in accoiuance with enviionmental stanuaius, paiticulaily in light of
cuiient technology anu aquacultuie piactices; oi
67
- (B) The piesence of seiious conflicts between fin-fish aquacultuie anu othei significant uses
oi values, such as
o Fin-fish aquacultuie in the aiea poses a cleai iisk to an enuangeieu species;
o Fin-fish aquacultuie poses a pioven thieat to an impoitant inuustiy in the aiea;
o Immeuiate pioximity to a salmon iivei oi to lanu that is unuei legal piotection; oi
- (C) Both the biophysical conuitions anu the piesence of seiious conflicts with othei
significant uses oi values inuicate the aiea is piopeily classifies as a ieu aiea.
Although Reu Aieas woulu be geneially off-limits foi fin-fish aquacultuie, the iegulatoiy fiamewoik
shoulu not piecluue the possibility that fin-fish aquacultuie coulu in exceptional ciicumstances be
authoiizeu in a Reu Aiea. It woulu howevei place a heavy onus on the BFA in its assessment of an
application foi a licence anu lease to satisfy itself anu to uemonstiate that any aquacultuie pioject
pioposeu foi a Reu Aiea fully auuiesseu the conuitions oi the combination of conuitions that maue
the aiea a Reu Aiea anu geneially off-limits to fin-fish aquacultuie. This appioach is consistent
with the appioach taken in Scotlanu.

PZ9[ ;%&)/11 2&% D==-6*#5 $3/ :&,1$,- :-,11*2*),$*&# @61$/0 2&% +*#C2*13 DE(,)(-$(%/
The objective of the iegulatoiy fiamewoik shoulu be a compiehensive classification of the
suitability of the coastal aieas of Nova Scotia foi fin-fish aquacultuie. To achieve that objective, the
BFA shoulu take a thiee-piongeu appioach.
Fiist, it shoulu unueitake a pioactive classification piocess that opeiates in paiallel to the licensing
anu leasing piocess. Although we aie not in a position to say exactly how we think this piocess
shoulu be oiganizeu anu conuucteu, we can say that the piocess shoulu have the following
chaiacteiistics oi elements.
The piocess shoulu be eviuence-baseu, open anu tianspaient. People with local anu
tiauitional knowleuge of coastal aieas shoulu have oppoitunities to input that knowleuge
into the piocess. They, along with all Nova Scotians, shoulu have the oppoitunity to
comment on the piocess as it pioceeus.

The piocess shoulu uiaw on the knowleuge anu ieseaich of expeits in scientific anu othei
uisciplines fiom within anu outsiue of goveinment, incluuing those in the scientific
community who have woikeu on classification systems such as the one we have
iecommenueu above as well as on the woik anu knowleuge of those who have uone
ieseaich that is ielevant to ueveloping anu applying such a system.
S7
Knowleuge expeits

37
Latei, we iecommenu that the iegulatoiy fiamewoik incluue a mechanism such as a foimal netwoik,
stanuing committee oi "knowleuge" iostei, though which the BFA can ieceive auvice fiom expeits on science
ielating to aquacultuie on a continuing basis. 0ne of the uses of this mechanism coulu be to involve to
involve knowleuge expeits in the piocess of classifying the coastal aieas of Nova Scotia ielative to theii
ielative suitability foi fin-fish aquacultuie. At the Rounutable, theie was vigoious uiscussion of a
iecommenuation that 1here was parLlal supporL from Lhe 8oundLable for a recommendaLlon LhaL, 1he provlnce
LogeLher wlLh federal parLners should, wlLhln a reasonable perlod of Llme, develop an overall coasLal plannlng
68
coulu be askeu, foi example, to pioviue auvice on how the ciiteiia foi gieen, ieu anu yellow
aieas coulu be iefineu anu on how they can be applieu in a iange of contexts anu conuitions.

The piocess shoulu builu on the laige bouy of existing ieseaich that has been uone in anu
outsiue of goveinment on coastal conuitions anu on the ielationship between uiveise
coastal conuitions anu the suitability of coastal aieas foi fin-fish aquacultuie when it is
conuucteu at uiffeient scales, unuei uiffeient management systems anu with uiffeient
technologies. With as much tianspaiency as possible, the piocess shoulu utilize the
mouelling system foi evaluating the enviionmental impacts of aquacultuie that is wiuely
useu in the iegulation of aquacultuie acioss Canaua anu in many othei juiisuictions.

The piocess shoulu builu on pievious successes in similai unueitakings. 0ne example is the
success of the Colin Stewait Foiestiy Foium on uevelopment of a plan oi fiamewoik foi
achieving Nova Scotia's objectives in wilueiness conseivation while ensuiing the
availability of fibei to the foiestiy inuustiy.
Bue to the high-level natuie of such a piocess, it is likely that this appioach woulu be only useful foi
classification of coastal aieas that can be classifieu without much contioveisy. Foi example, it is
moie likely to be useful foi aieas that aie cleaily ieu aieas than it woulu be foi aieas that may be
gieen aieas. Foi the lattei classification to be accepteu, a moie focuseu piocess is likely to be
neeueu.
Foi this anu othei ieasons, the iegulatoiy fiamewoik shoulu authoiize the BFA to unueitake
stiategic assessments on a moie taigeteu basis of paiticulai coastal zones. In the following section,
we outline the piocess anu function of such assessments. 0n piocess, they woulu be in the natuie
of a stiategic enviionmental assessment. 0n function, such assessments may be especially
applicable in uiffeientiating between gieen, yellow anu ieu aieas within a paiticulai coastal iegion
that cannot easily oi sensibly be classifieu as entiiely gieen, yellow oi ieu. Noie specifically,
stiategic assessments may be helpful in iuentifying gieen aieas in which the BFA can encouiage fin-
fish aquacultuie anu in moie cleaily uiffeientiating those aieas fiom coastal wateis in which fin-
fish aquacultuie is less likely to be appioveu.
Thiiu, until a compiehensive classification is completeu, the BFA will have to classify sites on an
inuiviuualizeu basis whenevei an application is maue foi a licence anu a lease in an aiea that has
not yet been classifieu in eithei the geneial classification piocess oi thiough a stiategic assessment.
This is explaineu in moie uetail in the section on licensing (site appioval) piocess. The iationale foi
this appioach is two-folu. 0n the one hanu we uo not think the iegulatoiy piocess shoulu be helu in
abeyance until the classification piocess has been completeu. 0n the othei hanu, we uo not think

process Lo address Lhe locaLlon of aquaculLure operaLlons ln Lhe conLexL of envlronmenLal sulLablllLy and oLher
marlne resource uses." ln Lhe end, Lhe recommendaLlon recelved only parLlal supporL by Lhe narrowesL of
marglns". An alLernaLlve, LhaL Lhe rovlnce should collaLe exlsLlng coasLal plannlng lnformaLlon and make lL
publlcly avallable Lo asslsL wlLh declslon-maklng regardlng aquaculLure slLlng, llkewlse recelved only parLlal
supporL. 1he recommendaLlon LhaL, lmprovemenLs Lo Lhe aquaculLure regulaLory sysLem should proceed ln a
Llmely fashlon, lndependenL of progress made wlLh developlng a coasLal plannlng framework" recelved quallfled
supporL. (8oundLable llnal 8eporL, page 12)
69
the licensing piocess can go foiwaiu without iegaiu to the impoitant iole that we think
classification must play in the licensing piocess.
The ielationship between each of these piongs of the piocess of classification shoulu be uynamic.
Classification choices maue in the geneial piocess oi thiough stiategic assessment will be taken
into account as a funuamental input into the licensing piocess. At the same time, classification
choices maue thiough stiategic assessment oi in the licensing piocess woulu auu to the oveiall
piogiess towaiu compiehensive classification of the coastline, which will be the main concein of
the geneial oi oveiall classification piocess.

PZ9\ .22/)$ &2 :-,11*2*),$*&# ,1 <%//#L b/--&7 &% 4/' D%/,
Besignation of a pait of Nova Scotia's coastline as gieen, yellow oi ieu foi fin-fish aquacultuie will
have a vaiiety of implications foi the iegulatoiy piocess as it applies to specific applications foi
appioval of specific sites anu piojects.
Fiist, if a pioposeu pioject is in an aiea uesignateu in the geneial piocess oi a stiategic assessment,
it will not have to go thiough a classification piocess uuiing the licensing anu leasing piocess.
Piojects pioposeu in aieas that have not been pieviously uesignateu will iequiie a ueteimination
fiom the iegulatoi as to whethei the site is a gieen, yellow oi ieu aiea site. Such a uesignation of an
inuiviuual site at the licensing anu leasing stage may usefully seive as a staiting point foi initiating
a uesignation piocess foi the wiuei aiea, paiticulaily if theie is ieason to believe that theie is
bioauei inteiest in opeiating aquacultuie facilities in the aiea.
Seconu, the uesignation of an aiea as gieen, yellow oi ieu will have implications foi the piocess of
ieviewing inuiviuual applications foi a lease anu licence to opeiate an aquacultuie facility in the
aiea. As set out in moie uetail below, the iegulatoiy piocess in gieen aieas will be moie
stieamlineu, wheieas the piocess in ieu aieas will be most oneious.
Thiiu, the likelihoou of an application to opeiate an aquacultuie facility being gianteu will uiffei. In
gieen aieas, it woulu be ieasonable to expect that licences woulu be gianteu foi well-uesigneu
opeiations that aie sensitive to othei useis anu aie pioposeu in suitable locations. 0n the othei
hanu, the likelihoou of a successful application in a ieu aiea woulu be low.
Finally, the teims anu conuitions unuei which aquacultuie facilities woulu be licenseu to opeiate
woulu vaiy. Because of the biophysical constiaints anu potential social anu economic conceins in
yellow anu ieu aieas, opeiations that uo get appioveu will have to meet auuitional teims anu
conuitions, such as auuitional monitoiing anu iepoiting obligations. They woulu typically also be
appioveu on teims anu conuitions that woulu be moie iestiictive of the scale anuoi uensity of the
aquacultuie that can be conuucteu than woulu typically apply in gieen aieas anu iequiie auuitional
measuies to be taken to ieuuce the highei iisk of auveise impacts piesent in yellow anu ieu aieas.


70
PZ9] 4/-/H,#)/ $& :-,11*2*),$*&# &2 ?*22/%/#)/1 Q/$7//# >*#'1 &2 +*#C2*13 DE(,)(-$(%/
Although we have outlineu a piocess of fin-fish aquacultuie, the ieality is that the iationale foi such
a system is piimaiily founu in the conceins associateu with salmon faiming oi moie bioauly, with
the faiming of salmonius. We have been tolu by expeits in the fielu that a numbei of these conceins
aie not ielevant at all oi to the same extent to othei kinus of fin-fish aquacultuie, such as halibut oi
cou aquacultuie.
In the classification fiamewoik we have pioposeu, these uiffeiences can be taken into account in
eithei of the following ways. Fiist, the fiamewoik can be applieu by taking the uiffeiences between
salmon anu othei kinus of fin-fish aquacultuie into account in how the fiamewoik is applieu.
0nuei this option, the iesult coulu be that aieas that may be yellow oi ieu foi the puipose of
salmon aquacultuie might be gieen (oi yellow insteau of ieu) foi othei kinus of fin-fish
aquacultuie. Alteinatively, othei kinus of fin-fish aquacultuie coulu, like shell-fish, be exempteu
fiom the classification system.
In oui view, unless it can be saiu that the conceins that exist with iespect to salmon aquacultuie aie
non-applicable to othei kinus of fin-fish aquacultuie, he fiist option woulu be the bettei option. It
woulu ensuie that the uiffeiences between salmon faiming anu othei kinus of fin-fish faiming into
account in the application of the classification system without assuming that those uiffeiences
justify an entiiely uiffeient tieatment of othei kinus of fin-fish aquacultuie.














71
P[ @$%,$/5*) D11/110/#$ &2 :&,1$,- D%/,1

In this section we will outline the piocess foi evaluating anu ueteimining the suitability of coastal
aieas foi aquacultuie at a iegional scale. This piocess coulu be useu to classify coastal iegions anu
aieas within coastal iegions as gieen, yellow anu ieu aieas foi fin-fish aquacultuie. Foi shell-fish
aquacultuie this piocess coulu be useu to pioactively iuentify aieas that aie anu that aie not
suitable foi the uevelopment oi giowth of that kinu of aquacultuie.
We iefei to this piocess as a stiategic assessment of coastal aieas of the aquacultuie potential of
the aiea. 0ui iecommenuation is that this stiategic assessment be caiiieu out not at a piovincial
level, but iathei at a moie local level, keeping in minu which aieas aie most likely to be of inteiest
to opeiatois, anu which aieas aie connecteu fiom a social anu ecological peispective.
In the case of fin-fish aquacultuie, the stiategic assessment piocess shoulu have two piimaiy goals
in any iegion in which it is caiiieu out. 0ne goal woulu be to iuentify gieen, yellow anu ieu aieas foi
fin-fish aquacultuie. A seconu goal is to iuentify any specific sites that aie paiticulaily suitable anu
piomising sites foi the uevelopment of aquacultuie because, in auuition to meeting the ciiteiia foi
gieen aieas, they aie locateu in oi close to communities in which theie is significant suppoit foi fin-
fish aquacultuie uevelopment unuei the pioposeu iegulatoiy fiamewoik. This seconu goal woulu
also pioviue the iationale foi stiategic assessments in ielation to shell-fish aquacultuie.
Foi the piocess to be effective, it neeus to be tianspaient, it neeus to be flexible, anu it neeus to fully
engage all inteiesteu paities in the iegion in question, incluuing Fiist Nations
S8
, potential opeiatois,
othei useis of the coastal aiea, inuustiies, inteiesteu iesiuents, anu all levels of goveinment. A key
goal of the piocess shoulu be to integiate biophysical, social anu economic aspects, anu theii
inteiactions, anu to iuentify to what extent the aiea in question is a suitable aiea foi aquacultuie in
light of the oveiall goal of ensuiing that aquacultuie in Nova Scotia minimizes enviionmental
impact while maximizing social anu economic benefits to Nova Scotians.
The piocess shoulu be caiiieu out in a mannei consistent with the following piinciples anu
elements:


38
1he 8oundLable expressed quallfled supporL for Lhe followlng recommendaLlon: 8oLh Lhe rovlnce and Lhe
proponenL should carry ouL meanlngful consulLaLlon wlLh kMk, oLher llrsL naLlons umbrella groups, llrsL naLlons
leaseholders and wlLh llrsL naLlon communlLles near a proposed slLe Lo ensure a solld undersLandlng of Lhe
proposed aquaculLure venLure and address communlLy concerns and rlghLs lssues. 1he consulLaLlon should follow
kMk guldellnes." 1here was also unanlmous supporL for Lhe ldea LhaL, llrsL naLlons food, soclal and ceremonlal
flsherles musL be addressed Lhrough Lhe slLlng crlLerla and LhroughouL Lhe slLlng process." (8oundLable llnal
8eporL, pages 16 and 20 respecLlvely)
72
O%&*/ .7&4$"> *"/ $"<&%'*)$&" >*)9(%$"> )& (".1%( )9( <1++ %*">( &< 2$&495.$7*+H .&7$*+ *"/
(7&"&'$7 $'4*7).H 2("(<$).H %$.A. *"/ 1"7(%)*$")$(. &< (*79 <&%' &< *@1*71+)1%( 1"/(%
7&".$/(%*)$&" *%( $/(")$<$(/P
S9

:*%(<1+ %(#$(= *"/ *"*+5.$. &< )9( $"<&%'*)$&" >*)9(%(/ )& 4%&4(%+5 /(.$>"*)( 7&*.)*+ *%(*.
=$)9$" )9( .)1/5 *%(* $" *77&%/*"7( =$)9 )9( 4%$"7$4+(. .() &1) $" )9( 4%(#$&1. .(7)$&"P
4u

?&71'(")*)$&" &< )9( %(.1+). &< )9( *"*+5.$. <&% 412+$7 7&''(")P
?(7$.$&" '*A$"> $" +$>9) &< )9( *"*+5.$. *"/ 7&''("). %(7($#(/P *"/
312+$7 (">*>('(") *"/ )%*".4*%("75 )9%&1>9&1)Q
We iecommenu that the piocess be initiateu with a backgiounu iepoit piepaieu by the BFA (with
input fiom ielevant piovincial anu feueial uepaitments) that consiueis the geneial biophysical
suitability of the aiea foi each type of aquacultuie unuei consiueiation. The backgiounu iepoit
shoulu also incluue infoimation about othei useis of the coastal aiea, anu any othei infoimation
that coulu be ielevant to the consiueiation of the suitability of the aiea foi aquacultuie opeiations.
The backgiounu iepoit shoulu focus on pioviuing infoimation. It shoulu not seek to ieach
conclusions oi suggest uesignation of aieas as gieen, yellow oi ieu aieas.
The iepoit shoulu be shaieu with communities, stakeholueis, anu membeis of the public in the aiea
unuei consiueiation. This shoulu be followeu by a flexible piocess of engaging with all inteiesteu
paities to assist in the uesignation of the coastal aiea unuei consiueiation accoiuing to the ciiteiia
set out in the pievious section. The piocess shoulu consiuei whethei theie aie sites within the aiea
that aie paiticulaily suitable foi aquacultuie, so as to waiiant a pioactive call foi pioposals by the
BFA to inteiesteu opeiatois.
We uo not want to be oveily piesciiptive on the natuie of the engagement piocess once the
backgiounu uocument is ieleaseu, paiticulaily in light of oui iecommenuation that it be
implementeu at a local oi iegional level iathei than at a piovincial level. The piocess neeus to be
sufficiently flexible to be suitable anu effective in uiffeient paits of the piovince anu potentially at
uiffeient scales. We uo suggest, howevei, that the public anu stakeholuei engagement piocess useu
by this Panel foi the iegulatoiy ieview anu the 2uu8 0ffshoie Renewable Eneigy SEA piocess in

39
1he 8oundLable gave unanlmous supporL for a recommendaLlon relaLlng Lo requlred daLa ln Lhe envlronmenLal
assessmenL process, as ueLalled hablLaL and waLer chemlsLry daLa for a proposed slLe musL be provlded as parL of
Lhe LlA process and a reference slLe ldenLlfled for comparlson. 1he daLa should be appllcable Lo Lhe LnvlronmenLal
MonlLorlng rogram process." (8oundLable llnal 8eporL, page 17)
40
arLlal supporL was lndlcaLed for Lhe relaLed recommendaLlon LhaL, 1he LlA process should lnclude a rlsk
analysls for all exlsLlng flsherles ln Lhe proposed slLe area, followed by a bay carrylng capaclLy sLudy." lurLhermore,
Lhere was quallfled supporL for uslng Lhe besL avallable predlcLlon model Lo assess slLe sulLablllLy" and also for
uslng Lhe besL avallable predlcLlon model Lo predlcL levels of seLLled organlc wasLes below fln-flsh cages, and
address Lhe cumulaLlve effecLs of successlve grow-ouL cycles of Lhe lease Lerm." (8oundLable llnal 8eporL, pages
17, 20, and 21 respecLlvely)
73
Nova Scotia can seive as a geneial guiue on how to effectively engage with inteiesteu membeis of
the public.
41

At the conclusion of the public engagement piocess, it will be up to the BFA to ueciue on the
appiopiiate uesignations within the coastal aiea unuei consiueiation. The BFA woulu piepaie a
uiaft uesignation uecision foi public comment, aftei which the Ninistei woulu make the final
uecision. The uesignation shoulu be ievieweu peiiouically thiough a piocess that is similai to the
piocess followeu foi the oiiginal uesignation.
Wheie stiategic assessment iuentifies aieas paiticulaily suitable foi the uevelopment of eithei kinu
of aquacultuie, the BFA woulu have the option of putting out a call foi bius on those sites to
pioactively encouiage theii uevelopment. In this way, stiategic assessment coulu leau to the
uesignation of aquacultuie uevelopment aieas as cuiiently contemplateu by the 8$.9(%$(. *"/
:&*.)*+ ;(.&1%7(. 67). Wheie bius aie calleu, they coulu be calleu eithei on the basis that the
selecteu biuueis woulu still have to go thiough the moie stieamlineu veision of the licensing
piocess uesciibeu below, oi on the basis that a licence coulu be gianteu on the basis of the stiategic
assessment piocess alone. Foi the lattei to happen, the stiategic assessment piocess woulu have to
pioviue iesiuents in local communities with ample oppoitunity to paiticipate in the assessment
piocess, anu it woulu have to be tianspaient fiom the outset that this woulu be a potential outcome
of the piocess. In auuition, it woulu have to concluue not only that the aiea was a gieen aiea (oi an
aiea suitable foi shell-fish aquacultuie) but that the uevelopment of the aiea foi aquacultuie
enjoyeu high levels of community suppoit. In othei woius, the absence of conceins about conflicts
with othei useis woulu not be enough. Positive suppoit foi uevelopment woulu have to be
establisheu thiough a veiy open stiategic assessment piocess befoie a licence coulu be issueu
outsiue of the noimal licensing piocess.












41
1he 8oundLable gave parLlal supporL Lo Lhe relaLed noLlon LhaL, LlA reporLs should be prepared by an
lndependenL Lhlrd parLy." (8oundLable llnal 8eporL, page 17)
74
P\ F*)/#1*#5 G@*$/ D==%&H,-I ;%&)/11

P\9P "#$%&'()$*&#
0nuei the cuiient iegulatoiy fiamewoik, aquacultuie is iegulateu thiough a licensing piocess that
woiks in conjunction with a leasing piocess. 0nuei this moue of iegulation, aquacultuie is
piohibiteu unless licenseu. 0nce licenseu, it has to be conuucteu in accoiuance with the teims anu
conuitions set out in the licence.
In auuition to a licence, an opeiatoi neeus a lease if the licenseu aquacultuie is to be caiiieu out on
Ciown lanu. Nost maiine-baseu aquacultuie is conuucteu on Ciown lanu. A lease is not
authoiization to conuuct aquacultuie. Rathei, it confeis an exclusive iight to use the leaseu space
foi aquacultuie when anu if a licence is obtaineu. Licensing anu leasing tenu to be useu
inteichangeably in uesciibing the piocess, peihaps because most sites neeu a lease as well as a
licence anu because the 8$.9(%$(. *"/ :&*.)*+ ;(.&1%7(. 67) pioviues that the lease is to be on the
same teims anu conuitions as the licence.
0ui ieviews of iegulatoiy fiamewoiks foi aquacultuie in place acioss Canaua anu in othei
juiisuictions shows that the moue of iegulation consistently useu is a licensing mouel. 0nuei this
mouel, aquacultuie is piohibiteu unless licenseu. 0nce licenseu, the iegulatoiy fiamewoik iequiies
it to be conuucteu in accoiuance with the iequiiements anu limitations that aie eithei wiitten into
specific licences oi in the licensing statute, in which case they aie applicable to all licencees
opeiating within the scope of the statutoiy iequiiements.
The licensing moue of iegulation shoulu continue to be the moue of iegulation useu in Nova Scotia.
Bowevei, we think it shoulu be conuucteu in accoiuance with the following impiovements.

P\9W F*)/#1*#5 ,#' .#H*%&#0/#$,- D11/110/#$
As noteu eailiei, the iegulation of aquacultuie ueals with many issues that otheiwise woulu be
auuiesseu unuei enviionmental iegulation. The impact of a pioposeu aquacultuie pioject on the
enviionment is a ciitical component of the evaluation that must be unueitaken befoie a licence is
issueu, ieneweu oi amenueu.
Foi this anu othei ieasons, it was pioposeu to us that we shoulu iecommenu that licensing be
subject to enviionmental assessment conuucteu unuei the !"#$%&"'(") 67).
42
Some pointeu out
that until iecent changes maue to the :*"*/$*" !"#$%&"'(")*+ 6..(..'(") 67), some aquacultuie
piojects weie subject to enviionmental assessment at the feueial level. In light of this no longei

42
1he 8oundLable expressed quallfled supporL for Lhe recommendaLlon LhaL, 1he regulaLory framework should
lnclude a requlremenL for envlronmenLal lmpacL assessmenL Lo be carrled ouL by Lhe rovlnce as a parL of Lhe
llcenslng process, lncludlng conslderaLlon of envlronmenLal, economlc and soclal lssues." ln addlLlon Lhere was
parLlal supporL for Lwo relaLed recommendaLlons, flrsL, LhaL 1he LlA process should lnclude a rlsk analysls for all
exlsLlng flsherles ln Lhe proposed slLe area, followed by a bay carrylng capaclLy sLudy", second, LhaL LlA reporLs
should be prepared by an lndependenL Lhlrd parLy." (8oundLable llnal 8eporL, page 17)
73
being the case, some suggesteu that this stiengtheneu the case foi a piovincial enviionmental
assessment unuei the !"#$%&"'(") 67) to take the place of the feueial enviionmental assessment
that will no longei occui.
0ui ieview of the iegulation of aquacultuie in othei juiisuictions inuicates that enviionmental
assessment sepaiate anu apait fiom the licensing piocess is not typically pait of the assessment of
a pioposeu aquacultuie pioject. In auuition, it shoulu be kept in minu that the feueial
enviionmental assessments that applieu to aquacultuie weie typically conuucteu as scieening
ieviews conuucteu by the same feueial agency that was calleu on to make a iegulatoiy uecision in
iespect of the pioposeu pioject. They weie not enviionmental assessments conuucteu by an
inuepenuent thiiu paity.
Consistent with oui conclusion that the iegulation of aquacultuie shoulu geneially continue to be
the iesponsibility of the BFA, we have concluueu that the piovincial enviionmental assessment
piocess shoulu not be applieu to the assessment of aquacultuie piojects. Insteau, we think
assessments of an application foi a licence shoulu be conuucteu by the BFA on the unueistanuing
that the assessment must covei all of the giounu that an enviionmental assessment woulu covei, in
auuition to whatevei auuitional giounu it must covei fiom a geneial licensing anu iesouice
utilization peispective. It shoulu in othei woius be conuucteu anu be unueistoou as a kinu of
specializeu enviionmental assessment, which, like the feueial enviionmental assessments that have
been conuucteu in the past, is conuucteu within the iegulatoiy appioval piocess.
So conuucteu anu so unueistoou, enviionmental assessment woulu be built into the iegulatoiy
fiamewoik in somewhat the same way as enviionmental assessment was built into feueial
uecision-making in iespect of aquacultuie befoie the iecent changes to the CEAA weie maue. The
enu iesult shoulu be one iegulatoi that is in a position to integiate enviionmental, social anu
economic consiueiations into an oveiall ueteimination on how to maximize net benefits to all Nova
Scotians in a mannei that is faii anu equitable.

P\9Y @$,$($&%6 F*)/#1*#5 ;%*#)*=-/1

The legislation goveining the licensing piocess shoulu set out the piinciples that aie expecteu to
guiue that piocess. Putting the piinciples in the legislation will mean that the BFA is unuei a legal
uuty to auuiess the piinciples in its assessment anu uecision-making on applications foi licences.
The piinciples woulu infoim anu guiue but not ueteimine the outcome in any paiticulai licensing
uecision. They shoulu be set out in the Act oi the iegulations using a non-exhaustive appioach to
uiafting to avoiu the implication that the listeu piinciples aie the only ones ielevant to licensing no
mattei the ciicumstances of a paiticulai licence application, vaiiation oi ienewal. 0ui piocess
leaus us to concluue that the piinciples shoulu auuiess the following matteis:


i. Compatibility with public iights of navigation;
ii. Compatibility with fisheiy activities, incluuing the lobstei fisheiy;
76
iii. Compatibility of the natuie anu scale of pioposeu opeiation ielative to the
biophysical, oceanogiaphic anu community context;
4S

iv. Compatibility with the activities of othei useis oi beneficiaiies of the public
wateis in question;
v. Responsiveness to the cumulative effect of aquacultuie in the aiea; anu
vi. Contiibution of the pioposeu pioject to net community socio-economic benefits.

Foi fin-fish aquacultuie, the application of these piinciples woulu be fiameu by the classification of
the aiea of the pioposeu opeiation as a gieen, yellow oi ieu aiea foi fin-fish aquacultuie puiposes.

0ui pioposal is similai to the appioach that has been taken in Naine. In that state, the
Commissionei who is iesponsible foi licensing is iequiieu by law to consiuei the following factois:

i. lmpacL on rlparlan owners,
ii. lnLerference wlLh navlgaLlon,
iii. lnLerference wlLh flshlng or oLher waLer-relaLed uses,
iv. lnLenslLy and frequency of oLher aquaculLure ln Lhe area,
v. lmpacL on Lhe ablllLy Lo supporL wlldllfe or marlne hablLaL,
vi. llsh healLh pracLlces,
vii. lmpacL on publlc use and en[oymenL of Lhe area, and
viii. LlghLlng, nolse and vlsual lmpacLs.

This appioach is uiffeient fiom the one we have pioposeu in thiee iespects: insteau of licensing
piinciples it lays out the factois that must be consiueieu; it lists the matteis that must be taken into
account in a moie specific way than uoes oui list of licensing piinciples; anu it explicitly auuiesses
some matteis, such as lighting noise anu visual impacts, that might not be encompasseu within oui
list of moie geneial piinciples.

The auvantages of a guiuing piinciples appioach is the flexibility it cieates to auuiess vaiiation
between cases as well as change anu evolution ovei time. It may also have gieatei capacity to
encompass issues of concein that aie ielevant to paiticulai cases but that aie not incluueu in a
specific list of the factois that must be consiueieu in all cases, although this coulu be auuiesseu by
auuing a "basket clause" to the list of specific factois. The othei auvantage of a guiuing piinciples
appioach is that it goes beyonu iuentification of the factois that shoulu be consiueieu to inuicating
how those factois shoulu be taken into account in the uecision-making piocess.

Eithei appioach woulu accomplish oui coie objective in pioposing a statutoiy list of guiuing
piinciples. This is to ensuie that those inteiesteu in a uecision on an application foi a licence have a

43
1he 8oundLable expressed unanlmous supporL for Lhe recommendaLlon LhaL, 1he regulaLory framework should
requlre Lhe deLermlnaLlon of Lhe carrylng capaclLy of a proposed slLe and lLs reference slLe, ln order Lo malnLaln
oxlc condlLlons. Llcenslng should lnclude maxlmum blomass levels based on carrylng capaclLy." 1here was furLher
quallfled supporL for Lhe recommendaLlon of uslng Lhe besL avallable predlcLlon model Lo assess slLe sulLablllLy" ln
Lhe conLexL of a declslon supporL sysLem. (8oundLable llnal 8eporL, page 20)
77
stiongei basis than they uo unuei cuiient legislation to holu the BFA accountable foi auuiessing
the issues that licensing shoulu, as mattei of law, auuiess. 0n balance howevei, we favoui a guiuing
piinciples appioach.

P\9Z A#*H/%1,- .-/0/#$1 &2 $3/ F*)/#1*#5 GD11/110/#$I ;%&)/11
Foi all kinus of aquacultuie, the licensing piocess woulu have the following elements. The content
of the elements woulu uiffei uepenuing on whethei the application is a shell-fish oi a maiine-baseu
fin-fish pioject anu uepenuing on whethei the pioposeu fin-fish site was in a uieen, Yellow oi Reu
zone. The content of the elements will also vaiy to ieflect the uiffeiences between the cases that
come foiwaiu within these bioau categoiizations.

,9 "#$%&'()$*&# &2 ,# cK=$*&# $& F/,1/d
44

0ne of the conceins piesseu on us most stiongly is that too many pioject pioponents
uo not seek input fiom the public until they aie iequiieu to uo so by the licensing
piocess. By then, a lease is in place anu pioject plans aie quite auvanceu. It was saiu
that this uenies the public a meaningful oppoitunity to make theii views known when
they aie most likely to have the gieatest impact on planning by pioponents anu
uecision-making by iegulatois. It means that public paiticipation only occuis when the
community is faceu with what looks like a uone ueal between the pioponent anu the
iegulatoi, which helps encouiage uistiust anu community opposition. It may also mean
that the pioject has been uevelopeu without input that coulu have maue it bettei in
ways that woulu make it moie acceptable to the community anu a bettei oveiall
pioject.
Inuustiy iepiesentatives explaineu that pioponents must uo a lot of piepaiatoiy woik
to ueteimine the suitability of a site foi aquacultuie anu the kinu oi scale of
aquacultuie that woulu be suitable foi a paiticulai site. They explaineu that if
pioponents incluueu consultations with the community in this piepaiatoiy woik
befoie secuiing a lease, infoimation about the site anu the pioponent's plans foi the
site woulu make its way to competitois who coulu then use it to apply foi a lease befoie
the pioponent has an oppoitunity to uo so.
We think the piocess of ueveloping aquacultuie piojects anu the iegulatoiy piocess
woulu both woik moie smoothly anu effectively if community involvement was able to
stait fiom eaily in the planning piocess anu in paiticulai, befoie a lease is applieu foi.
To facilitate this, we iecommenu that the iegulatoiy fiamewoik shoulu follow the
iecommenuation which ieceiveu qualifieu suppoit at the Rounutable, that "theie

44
1here are slLuaLlons where Lhe appllcanL for a llcence does noL requlre a lease because Lhey own Lhe land on
whlch Lhelr pro[ecL ls Lo be conducLed. ln LhaL slLuaLlon, Lhe lndusLry concern whlch Lhe opLlon Lo lease ls lnLended
Lo address does noL arlse because Lhe proponenL does noL rlsk loslng Lhelr slLe Lo a compeLlLor.
78
shoulu be a iegulatoiy iequiiement to notify the public eaily to incoipoiate local
knowleuge anu public input into licence applications".
4S

At the same time, we think this will only be feasible if pioponents can infoim the public
of theii intentions anu engage with communities with ieasonable confiuence that
competitois cannot use the infoimation that pioponents shaie with communities to
pie-empt the pioponent in applying foi a lease. In othei woius, the iegulatoiy
fiamewoik shoulu auuiess the main concein of those membeis of the Rounutable who
qualifieu theii suppoit foi the iecommenuation quoteu in the pievious paiagiaph,
which was how the inteiests of a piospective opeiatoi coulu be piotecteu if knowleuge
of theii inteiest in anu plans foi a paiticulai site become geneially known piioi to theii
application foi a licence anu lease.
To stiike this balance, Nova Scotia's iegulatoiy fiamewoik shoulu auopt the "option to
lease" concept that is pait of the iegulatoiy fiamewoik foi aquacultuie in Scotlanu.
0nuei this concept, the iegulatoiy piocess begins with an application foi an option to
lease. 0nce an option to lease is issueu, only the holuei of the option can apply foi a
lease of the site while the option is in effect. This allows the holuei of the option to
engage with stakeholueis in ueveloping theii pioject with secuiity that competitois
cannot use theii woik to apply foi a lease aheau of them. The basic iuea is that an
option to lease woulu give a paiticulai opeiatoi piioiity access to a paiticulai site ovei
all othei opeiatois, without offeiing any guaiantees that a lease oi licence will evei be
issueu to them foi the site.
The option to lease woulu give pioponents a limiteu peiiou of time uuiing which they
woulu have the exclusive iight to submit a pioject foi iegulatoiy consiueiation. Baseu
on what we have heaiu, this shoulu iemove a key baiiiei to engagement with
communities in the eaily stages of pioject uevelopment anu planning.
uiven its limiteu effect anu puipose, the option to lease shoulu be easily obtaineu with
minimal piocess. Essentially it shoulu be gianteu when it is applieu foi unless the BFA
has some veiy specific ieason to ueny the application, such as the ineligibility of the
applicant to apply foi a licence anu lease. To avoiu the temptation businesses may have
to "sit" on an option to lease, an option to lease shoulu only be issueu foi sites if the
pioponent is ieauy to commence the licensing piocess, anu shoulu expiie aftei a set
peiiou of time.


U9 :-/,%/%e1$%&#5/% S&$*2*),$*&# ,#' "#2&%0,$*&# ;%&H*1*&# 4/E(*%/0/#$1
As soon as the option to lease is issueu, the public anu inteiesteu stakeholueis woulu
be immeuiately notifieu by the BFA. The public notice of the option to lease in essence
constitutes the initial public notice of the stait of the licensing piocess. Fiom this point

43
See 8oundLable llnal 8eporL aL page 14.
79
on, the licensing piocess shoulu be uesigneu to engage inteiesteu membeis of the
public anu of affecteu communities pioactively, anu to be as tianspaient as possible.
The commitment to openness anu tianspaiency shoulu continue beyonu the initial
lease anu licensing piocess foi as long as the site is consiueieu an active aquacultuie
site. The BFA shoulu cieate a webpage foi each aquacultuie site unuei option oi lease
on the BFA website that pioviues all ielevant infoimation to inteiesteu membeis of the
public about the status of the site anu, foi eveiy appioveu site, the teims anu conuitions
unuei which it is peimitteu to opeiate, monitoiing iesults, anu any othei ielevant
infoimation. This same webpage coulu seive to facilitate full anu timely tianspaiency
thioughout the opeiation of the facility.
In these ways, the new iegulatoiy fiamewoik will be iesponsive to seveial
iecommenuations that ieceiveu qualifieu suppoit at the Rounutable: fiist, that theie
shoulu be a iegulatoiy iequiiement to notify the public eaily anu to incoipoiate local
knowleuge anu public input into the licence applications anu seconu, that all licence
application infoimation peitaining to enviionmental impacts anu impacts on othei
iesouice use anu useis shoulu be maue publicly available.

)9 O,#',$&%6 ;%/CD==-*),$*&# @)&=*#5 ;%&)/11
To apply foi a licence, the holuei of an option to lease woulu be iequiieu to initiate anu
conuuct a pie-application scoping piocess in the community oi communities in close
pioximity to the pioposeu aquacultuie pioject. The BFA woulu be iesponsible foi
ensuiing appiopiiate notification of the piocess but the piocess woulu noimally be
conuucteu by the pioponent. The puipose of the scoping piocess woulu be two-folu.
Fiist, it woulu be to auuiess the uesiie foi community membeis to know about anu to
have an oppoitunity to have input into the uevelopment of the pioject befoie it gets
into the foimal iegulatoiy piocess. The piocess woulu give local iesiuents a chance to
leain about the pioposeu pioject, to expiess theii eaily suppoit oi opposition foi the
pioject to the pioponent anu to pioviue local knowleuge to the pioponent that may
uiscouiage oi impiove the application foi a licence anu a lease. The seconu objective
woulu be to ensuie the pioponent has access to local knowleuge which may be ielevant
to its uecision of whethei to pioceeu to the application stage anu, wheie it uoes ueciue
to pioceeu, to the content of its application.
46

In bioau teims, this new stage of the piocess, which is similai to what may happen
infoimally anu inconsistently unuei the cuiient fiamewoik, is baseu on the Pie-
Application Scoping Session that applicants must conuuct befoie applying foi a licence
in Naine. 0nuei that appioach, the iegulatoi must be satisfieu that the applicant foi a
licence has faiily anu seiiously conuucteu the pie-application scoping piocess befoie it

46
1he 8oundLable expressed quallfled supporL for a recommendaLlon LhaL, 1here should be a regulaLory
requlremenL Lo noLlfy Lhe publlc early and Lo lncorporaLe local knowledge and publlc lnpuL lnLo llcense
appllcaLlons", among general agreemenL LhaL early publlc lnpuL was vlLal.
80
agiees that the application foi a licence is complete anu ieauy foi consiueiation. We
think this shoulu be the appioach auopteu in Nova Scotia.
To that enu, we iecommenu that applicants foi a licence be iequiieu to incluue a
section on how the pie-application piocess was conuucteu anu what was leaineu fiom
the piocess in the backgiounu uocument (oi scoping iepoit) that we say below shoulu
be a iequiieu pait of eveiy application. This poition of the iepoit woulu be expecteu to
auuiess matteis such as:
0veiall levels of suppoit anu opposition to the pioposeu opeiation;
views on the pioposeu location, scale, species, opeiatoi, technology, etc.;
views on compatibility with existing activities in the aiea;
views on impacts, benefits, iisks anu unceitainties; anu
views on what the opeiation shoulu be iequiieu to uo to minimize its impact on
the natuial enviionment anu on othei uses of the coastal aiea.
By iequiiing infoimation leaineu in the pie-application scoping piocess to be incluueu
in the iepoit that the applicant must submit with an application foi a licence anu lease,
the iegulatoiy fiamewoik woulu be iesponsive to a iecommenuation that ieceiveu
qualifieu suppoit at the Rounutable, that theie shoulu be a iegulatoiy iequiiement to
incoipoiate local knowleuge anu public input into licence applications.

'9 +*-*#5 &2 Q,)85%&(#' ?&)(0/#$ G@)&=*#5 4/=&%$I
As in Naine, applicants foi a licence anu lease in Nova Scotia shoulu be iequiieu to
submit a backgiounu uocument (oi scoping iepoit), which woulu become the piimaiy
factual founuation foi the application. The backgiounu uocument oi scoping ieview
woulu be a uocument available to the public. As such, one of its functions will be to
enable meaningful public paiticipation in the foimal stages of the licensing piocess.
0ne of the othei functions of this iepoit will be to enable the assessment of the
application to encompass anu auuiess the matteis anu issues that woulu typically be
coveieu in a piocess of enviionmental assessment. In the case of fin-fish aquacultuie,
anothei function of the iepoit (in combination with public feeuback on the iepoit) will
be to give the BFA the infoimation it will neeu to eithei classify a pioposeu site in the
gieen, yellow oi ieu classification oi to ueciue how an application shoulu be assesseu
anu ueciueu given its piioi classification in the gieen, yellow oi ieu classification
system.
The infoimation that a backgiounu uocument oi scoping iepoit will incluue will vaiy
with the kinu of aquacultuie being pioposeu anu with the location of the pioposeu
opeiation. It shoulu howevei incluue the infoimation on the pie-application scoping
piocess outlineu above. It shoulu also incluue infoimation on the following matteis:

81
1. A uetaileu uesciiption of the pioposeu lease site anu of the pioposeu opeiation
(incluuing scalesize, location, species, anu stocking uensity);
2. Biophysical conuitions at the pioposeu site of ielevance to the suitability of the
site foi the pioposeu opeiation, incluuing bottom chaiacteiistics, tiue levels anu
cuiient speeu anu uiiection, anu iesiuent floia anu fauna;
S. An oveiview of all cuiient anu iecent activities in aiea that have the potential to
be affecteu by the pioposeu opeiation oi that have the potential to inteiact
cumulatively with coastal ecosystems that have the potential to be impacteu by
the pioposeu opeiation (incluuing fishing, angling, touiism, iecieational, lanu
baseu inuustiial anu agiicultuial opeiations);
4. The piesence of any enuangeieu species in the aiea potentially affecteu by the
pioposeu facility;
S. Specific measuies the pioponent intenus to take in teims of opeiational piactice
anu technologies to ieuuce the enviionmental impact of the opeiation anu to
ensuie the suitability of the pioposeu opeiation foi the pioposeu site; anu
6. Any othei mattei on which the BFA specifically asks foi infoimation
47


The backgiounu uocument (oi scoping iepoit) iequiiement anu the iequiiement that it
be a public uocument will help to ensuie that the iegulatoiy fiamewoik iesponus in an
oiganizeu anu consistent fashion to the iecommenuation of the Rounutable, which
ieceiveu qualifieu suppoit, that "All licence application infoimation peitaining to
enviionmental impact anu impacts on othei maiine iesouice use anu useis shoulu be
maue publicly available".

/9 D==-*),$*&# @)%//#*#5 ;%&)/11
0nce an application foi a licence anu lease is submitteu with the BFA, the uepaitment
woulu caiiy out an initial scieening. This woulu be to consiuei whethei the application
is complete anu ieauy foi a heaiing. But it woulu also be to ueteimine if the application
has a ieasonable piospect of success if it weie moveu on to the next stage of the
piocess. The scieening woulu take into account public comments maue to the BFA on
the application thiough a notice anu comment piocess uesciibeu below.
The uecision options available to the BFA at this stage of the piocess woulu be senu the
application back to the applicant if the BFA ueteimines that the application is
incomplete; to ieject the application if the BFA ueteimines it has no ieasonable
piospect of success; oi to senu the application on foi a heaiing. Wheie the uecision was
to senu the application back oi to ieject the application on the basis it hau no piospects

47
ln developlng Lhls llsL of lLems Lo be addressed ln Lhe background documenL or scoplng reporL, we have noLed
LhaL ln Malne, Lhe appllcaLlon musL address: a descrlpLlon of Lhe proposed lease slLe, a llsL of specles Lo be culLured
and Lhe source of Lhe organlsms, an envlronmenLal evaluaLlon of Lhe slLe lncludlng boLLom characLerlsLlcs, resldenL
flora and fauna, Llde levels and currenL speed and dlrecLlon, a descrlpLlon of Lhe recreaLlonal and commerclal
flshlng acLlvlLy ln Lhe vlclnlLy, evldence of Lechnlcal and flnanclal capablllLy, and any oLher lnformaLlon Lhe
Commlssloner may requlre.
82
foi success, the BFA woulu be iequiieu to explain the basis foi its uecision. A uecision
to ieject an application at this stage on the basis it hau no piospects foi success woulu
be subject to appeal uue to its final natuie. 0thei uecisions maue at this stage woulu
not be subject to appeal.
To auuiess files wheie incompleteness oi absence of piospects foi success aie cleai,
the BFA woulu have the authoiity to senu back oi to ieject on a summaiy basis without
seeking public input oi input fiom othei iegulatois. 0theiwise, theie woulu be Su-uay
public comment peiiou within this stage of the piocess. In othei woius, the public
woulu have a Su uay peiiou to give its comments to the BFA on the iepoitapplication
submitteu by the applicant. Foi that puipose, the scieening peiiou woulu be initiateu
by posting of the iepoitapplication on the BFA's website. Wheie an application passes
the scieening stage, the public comments ieceiveu become pait of the file foi the
puipose of the heaiing.
The consultations of the BFA with othei iegulatoiy agencies woulu also happen at this
stage of the piocess, again, unless the BFA senus the application back oi iejects the
application solely on its own assessment. The consultations coulu become pait of the
basis of a uecision to senu back oi to ieject. Wheie they uo not have that effect, they
woulu become pait of the file foi the puipose of the heaiing.
Foi fin-fish applications that aie in locations that have alieauy been categoiizeu as
uieen, Yellow oi Reu, that piioi chaiacteiization woulu be taken into account at this
stage foi the puipose of ueciuing whethei the application will pioceeu to a heaiing. Foi
fin-fish applications in locations that have not been categoiizeu, pait of the analysis to
be uone at the scieening stage is whethei the application incluues the infoimation that
is neeueu to categoiize the location as gieen, yellow oi ieu.
Foi applications that pass the scieening piocess anu on which theie is a uiscietion to
be exeiciseu as to the kinu of heaiing that will be helu, this uiscietion woulu be
exeiciseu in the application scieening piocess. So, foi example, if theie was a
uiscietion to choose between what we subsequently call an auministiative style of
heaiing anu an aujuuicative style of heaiing, that uiscietion woulu be exeiciseu at this
stage.
The scieening piocess will also give the BFA the oppoitunity to iuentify the issues that
it believes aie those that must be auuiesseu by the applicant in the heaiing. This will
help to ensuie the heaiing is oiganizeu, piouuctive anu efficient.

29 O,#',$&%6 U($ _,%*,U-/ X/,%*#5
0nuei the cuiient iegulatoiy fiamewoik, the Ninistei of Fisheiies anu Aquacultuie is
authoiizeu but is not iequiieu to conuuct a heaiing befoie licensing a pioject anu
issuing a lease. The Act is veiy open-enueu as to the kinu of heaiing that the Ninistei
can conuuct when he oi she ueciues to conuuct a heaiing.
83
0nuei the new iegulatoiy fiamewoik, a heaiing woulu be pait of the piocess foi eveiy
application foi a licence. What woulu vaiy woulu be the kinu of heaiing that woulu be
conuucteu in each case. We envisage two basic kinus of heaiings with some ioom foi
vaiiation as to how each is conuucteu in specific cases. 0ne woulu be an
"auministiative" style of heaiing anu the othei woulu be an "aujuuicative style" of
heaiing. Auministiative heaiings woulu be conuucteu laigely thiough a piocess in
which paiticipants aie given the oppoitunity to comment, ask questions anu make
submissions in wiiting. Aujuuicative heaiings woulu be conuucteu thiough a piocess
that incluues a foimal heaiing conuucteu in peison befoie the peison who is uesignateu
to make the uecision oi to conuuct the in-peison poition of the heaiing on behalf of the
uecision-makei.
Foi shell-fish applications, the legislation woulu leave the choice of which of the two
kinus of heaiing will be useu to the BFA but lay out the kinu of factois the BFA woulu
be iequiieu to take into account in ueciuing on the foim of heaiing to be helu in
paiticulai cases. We woulu anticipate that most heaiings foi shell-fish applications
woulu be auministiative heaiings. The BFA woulu howevei have the uiscietion to
oiuei an aujuuicative heaiing in paiticulai cases. Its exeicise of this uiscietion woulu
be subject to appeal.
In contiast, foi fin-fish applications, the legislation woulu specify that the heaiing to be
helu must be, with one possible exception, an aujuuicative heaiing. The possible
exception woulu be foi applications in gieen aieas wheie the classification of the aiea
as a gieen aiea has been ueteimineu thiough a stiategic assessment oi a pievious
licensing uecision. In those cases, the BFA woulu have the uiscietion to conuuct the
heaiing foi a fin-fish licence in a gieen aiea as an auministiative heaiing. The exeicise
of that uiscietion woulu be subject to appeal.
Both kinus of heaiings woulu be iequiieu to meet essential pioceuuial piotections to
ensuie faiiness. Foi example, paiticipants in both kinus of heaiings woulu have access
to the infoimation neeueu to make theii paiticipation in the piocess meaningful. In
othei woius, the access of paiticipants to the application file woulu be the same in
auministiative anu aujuuicative heaiings. In both kinus of heaiings, the exception
woulu be infoimation that woulu be withhelu because the applicant establisheu it was
business confiuential infoimation. As explaineu in oui eailiei uiscussion of
tianspaiency, the onus of establishing the business confiuentiality of infoimation
shoulu be on the applicant unuei a statutoiy uefinition of confiuential infoimation that
is naiiow anu iestiictive.
In both kinus of heaiings, paiticipants woulu have the oppoitunity to piesent whatevei
infoimation oi make whatevei submissions they wanteu, subject only to showing its
ielevance anu to ieasonable limits iequiieu to ensuie the heaiing is conuucteu
efficiently anu economically.
In both kinus of heaiings, theie woulu be a iequiiement that the uecision be maue on
the basis of the infoimation consiueieu at the heaiing anu a iequiiement foi the
84
ieasons foi the uecision to be ieleaseu publicly anu to eveiyone who uiiectly
paiticipateu in the heaiing.
In these iespects, the iegulatoiy fiamewoik woulu be iesponsive to the Rounutable
iecommenuation that "A public heaiing shoulu be a manuatoiy iequiiement with
foimal pioceuuies". We iecognize that this iecommenuation only ieceiveu paitial
suppoit. We have tiieu howevei to auuiess at least one of the ieasons that pieventeu
some fiom suppoiting the iecommenuation, which was "past expeiience with public
meetings that weie pooily iun without foimal pioceuuies". We have not auuiesseu the
othei ieason that was given foi those who weie not able to suppoit the
iecommenuation, which was the view that a public heaiing shoulu not be necessaiy
wheie a pioponent hau caiiieu out effective consultation. 0ui view howevei is that
such a pioponent will usually be iewaiueu with an efficient anu positive heaiing
expeiience.
0ui iecommenuations on the openness of the heaiing piocess iesponus to the
Rounutable iecommenuation that, "All licence application infoimation peitaining to
enviionmental impact anu impacts on othei maiine iesouice use anu useis shoulu be
maue publicly available". This iecommenuation ieceiveu qualifieu suppoit, with the
qualification ielating to piotection of sensitive business infoimation. In auuition to the
piotection foi confiuential infoimation that we have pioposeu we also note that the
iecommenuation specifies public access to "infoimation peitaining to enviionmental
impact anu impacts on othei maiine iesouice use anu useis".

59 N%*$$/# 4/,1&#1 2&% ?/)*1*&#
The BFA woulu be subject to a statutoiy uuty to give ieasons foi its uecision following a
heaiing. The legislation woulu specify that the uecision anu the ieasons foi the
uecision must be posteu on a web site anu otheiwise maue available to paiticipants in
the heaiing anu the bioauei public. This woulu be consistent with the iecommenuation
fiom the Rounutable, which ieceiveu qualifieu suppoit, that "uoveinment shoulu be
iequiieu to iesponu to the issues iaiseu uuiing the public heaiing piocess".
This is anothei aspect of pioceuuial iights that woulu be the same in auministiative
anu aujuuicative heaiings. To ensuie it is a meaningful tool of accountability anu
tianspaiency, the legislation woulu specify that the ieasons foi the uecision woulu have
to explain how the licensing piinciples weie taken into account anu how the uecision
auvanceu the piinciples anu the goals of the bioauei iegulatoiy fiamewoik
48


48
ln Malne, Lhe Commlssloner who ls auLhorlzed Lo deLermlne appllcaLlons for leases can only granL a lease lf
saLlsfled: Lhe lease wlll noL unreasonably lnLerfere wlLh lngress and egress of rlparlan owners, Lhe lease wlll noL
unreasonably lnLerfere wlLh navlgaLlon, Lhe lease wlll noL unreasonably lnLerfere wlLh flshlng or oLher uses of Lhe
area, Lhe lease wlll noL unreasonably lnLerfere wlLh slgnlflcanL wlldllfe hablLaL and marlne hablLaL or wlLh Lhe
ablllLy of Lhe lease slLe and surroundlng marlne and upland areas Lo supporL exlsLlng ecologlcally slgnlflcanL flora
and fauna, Lhe appllcanL has demonsLraLed LhaL Lhere ls an avallable source of organlsms Lo be culLured aL Lhe slLe,
83

39 J3/ %&-/ &2 J3*%' ;,%$*/1 *# :&#'()$*#5 $3/ ;%&)/11
The BFA woulu have the authoiity to iequiie a pioponent to use a thiiu paity to
facilitate the pie-application scoping piocess.
The BFA woulu have the authoiity (as it uoes now) to commission a thiiu paity to
conuuct a ieview of any application befoie ienueiing its uecision on the application.
This coulu be uone befoie the heaiing. In that case, the iepoit fiom the thiiu paity
woulu be consiueieu in the heaiing. Alteinatively, a iepoit by a thiiu paity coulu be
commissioneu aftei a heaiing. In that case, paiticipants in the heaiing woulu be given
an oppoitunity to comment on the iepoit befoie it coulu be taken into account in
ueciuing the application. In both cases, the iepoit fiom the inuepenuent thiiu paity
woulu be posteu on the webpage cieateu foi the site on the BFA website.
0tilizeu in this way, thiiu paity iepoits woulu seive somewhat the same function as
focus stuuies peifoim unuei the !"#$%&"'(") 67). They woulu geneially be of a fact-
finuing natuie but coulu also be manuateu to incluue iecommenuations. They woulu
be a uevice the BFA coulu use wheie it iequiieu auuitional infoimation anuoi
infoimation fiom a neutial souice anuoi fiom someone with a paiticulai expeitise.
They coulu be useu to assist with the ie-builuing of tiust wheie views have become
polaiizeu anu ielationships auveisaiial. Thiiu paities coulu also be engageu to consult
with potentially affecteu communities, incluuing aboiiginal communities, stakeholueis,
anu inteiesteu membeis of the public, to infoim them of what is pioposeu, anu to solicit
theii views on the pioposeu facility.
Thiiu paities coulu also play a iole in the conuuct of the heaiing. The BFA coulu assign
iesponsibility foi the uecision to an inuepenuent thiiu paity oi to a Panel of
inuepenuent thiiu paities. Alteinatively, an inuepenuent thiiu paity coulu be incluueu
in the conuuct of the heaiing with BFA membeis.

*9 D==/,- $& $3/ O*#*1$/%
As unuei the cuiient fiamewoik, pioponents shoulu have the statutoiy iight to appeal
the uecision to iefuse a licence to the Ninistei anu opponents of piojects shoulu have
the oppoitunity to appeal to the Ninistei on a uecision to giant a licence.
49
Appeals
woulu have to be maue within Su uays of public notice of the uecision being appealeu

Lhe lease does noL unreasonably lnLerfere wlLh publlc use or en[oymenL wlLhln 1,000 feeL of beaches, parks or
docks owned by governmenL, Lhe lease wlll noL resulL ln unreasonable lmpacL from nolse or llghL aL Lhe boundarles
of Lhe lease slLe, and Lhe lease complles wlLh vlsual lmpacL crlLerla relaLlng Lo colour, helghL, shape and mass. 1hls
ls a more prescrlpLlve approach whlch mlrrors Lhe llsL of Lhlngs Lhe Commlssloner ls requlred Lo conslder. We wlll
be conslderlng Lhls approach as we conLlnue Lo work on Lhe documenL.
49
1here was parLlal supporL for Lhe 8oundLable for a recommendaLlon Lo LhaL effecL: 1he publlc and Lhe poLenLlal
operaLor should have Lhe rlghL Lo appeal a declslon Lo lssue or renew a llcense or a refusal Lo lssue a llcence."
(8oundLable llnal 8eporL, page 31)
86
anu the Ninistei woulu be iequiieu to ueciue the appeal within 6u uays of ieceiving the
appeal. While this is all a continuation of what is cuiiently pioviueu unuei the existing
fiamewoik, the uiffeience woulu be that unuei the new fiamewoik the Ninistei woulu
not be both the licensing official anu the peison being appealeu to. This is because
unuei the pioposeu fiamewoik, the licensing anu leasing uecision woulu be maue by
the official in the BFA uelegateu the authoiity to make those uecisions.

V9 D==/,- $& $3/ S&H, @)&$*, @(=%/0/ :&(%$
Wheie an appellant to the Ninistei is unsatisfieu with the Ninistei's ueteimination of
an appeal, they woulu have the iight to appeal to the Nova Scotia Supieme Couit within
9u uays of public notice of a uecision of the Ninistei. This is a change fiom the cuiient
situation wheie a paity uissatisfieu with a Ninisteiial uecision has to apply foi juuicial
ieview, i.e. foi the peimission of the couit to challenge the Ninistei's uecision. It woulu
make the legislative fiamewoik foi ieview of aquacultuie piojects consistent with the
!"#$%&"'(") 67) in this iespect except that we aie iecommenuing that people be given
9u uays iathei than the Su uays that is usually pioviueu in legislation to ueciue
whethei oi not they will appeal anu to piepaie theii appeal.

89 ;%&)/'(%,- :-,%*$6 ,#' :/%$,*#$6
0ne of the conceins about the cuiient iegulatoiy fiamewoik we heaiu fiom inuustiy is
that it is pioceuuially unceitain anu sometimes unwilling oi unable to ieach oi to stick
with uecisions once maue. These conceins coulu inciease unuei the pioposeu
iegulatoiy fiamewoik if it uoes not function in a pieuictable fashion given the
significant auuitional woik the fiamewoik will iequiie fiom pioponents at the eaily
stages of the piocess.
We heaiu a similai set of conceins fiom community membeis, even though it was often
expiesseu fiom the peispective of those who peihaps expecteu uiffeient uecisions fiom
the piocess than woulu typically be expecteu by those in the inuustiy. The
unpieuictability of the cuiient piocess is a concein foi eveiyone, even if they aie
conceineu about it foi somewhat uiffeient ieasons.
We think the new iegulatoiy fiamewoik shoulu iesponu to these conceins. It shoulu
contain elements of piocess ceitainty foi those who will have investeu time anu
iesouices into the uevelopment of an aquacultuie pioject unuei a licensing anu leasing
piocess that will impose highei uemanus anu costs on applicants than the cuiient
fiamewoik uoes. At the same time, caie neeus to be taken to ensuie that the iegulatoiy
fiamewoik auuiesses piocess ceitainty in ways that ieflect anu iespect the uiffeiences
that will exist between inuiviuual applications. Theiefoie, the appioach shoulu be to
achieve ceitainty within the context of the ielative scale, complexity anu uisagieement
associateu with each application.
87
To auuiess these objectives, we iecommenu that the legislation subject the BFA to the
following thiee pioceuuial obligations:
To specify anu abiue by a maximum length of time foi ieaching a uecision on an
application once it concluues that an application passes the scieening stage of
the piocess;
To specify a maximum length of time foi the completion of the heaiing stage of
the piocess at the commencement of that stage of the piocess anu to complete
the heaiing stage of the piocess within that peiiou of time; anu
To specify a maximum length of time within which a uecision will be ieacheu at
the enu of the heaiing stage of the piocess anu to make anu ielease a uecision
within that peiiou of time.
We also iecommenu that the legislation pioviue applicants with the option of applying
to the Nova Scotia Supieme Couit foi an oiuei iequiiing a uecision to be maue on an
expeuiteu basis wheie it has not been maue within the time specifieu at the conclusion
of the heaiing foi the making of the uecision oi wheie the time specifieu foi the making
of a uecision at the enu of the heaiing is beyonu the time specifieu at the scieening
stage of the piocess foi the completion of the oveiall piocess.

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The licensing piocess will have the same elements (oi steps) when applieu to fin-fish aquacultuie
as it will have when it is applieu to shell-fish aquacultuie. The main pioceuuial uiffeience will be
that the heaiing will be an aujuuicative heaiing foi fin-fish applications unless the application
ielates to a gieen aiea which has been ueteimineu to be a gieen aiea thiough a stiategic
assessment oi a pievious licensing piocess in which an aujuuicative heaiing was helu. In that
scenaiio, an auministiative heaiing may be helu foi a fin-fish application. In contiast, the heaiing
will typically be an auministiative heaiing foi most shell-fish applications.
This will not howevei be the only uiffeience between how the licensing piocess applies to fin-fish
anu shell-fish applications. The common elements of the licensing piocess will typically iequiie
moie of the applicant anu of the BFA wheie the application is a fin-fish application than it typically
will of the applicant anu the BFA wheie the application is foi a shell-fish opeiation. Foi example,
although both the pioponent of a fin-fish opeiation anu a shell-fish opeiation woulu be iequiieu to
submit a backgiounu uocument with theii application, the one submitteu foi a fin-fish opeiation
will typically be expecteu to iuentify moie potential enviionmental impacts that have to be
auuiesseu than woulu the iepoit submitteu with a shell-fish application. This will mean that the
applicant foi a fin-fish licence will typically have to auuiess moie issues anu moie uifficult issues in
the scieening anu heaiing stages of the piocess than most applicants foi a shell-fish licence anu
lease.
88
It follows that the applicant foi a fin-fish licence will typically have moie woik to uo to show that
the licence woulu be consistent with the statutoiy licensing piinciples, even though the licensing
piinciples woulu be the same foi them as foi an applicant foi a shell-fish licence. Similaily,
although the onus the legislation woulu place on the BFA to justify a uecision to licence woulu be
legally the same in the consiueiation of fin-fish anu shell-fish applications, it woulu in piactical
teims usually be moie uemanuing wheie the application is foi a fin-fish opeiation.
Such uiffeiences in what is piactically uemanueu of applicants anu of the BFA when the univeisal
elements of the licensing piocess aie applieu to fin-fish anu shell-fish applications will geneially
inciease wheie the fin-fish application is foi a licence in a coastal aiea that is yellow oi ieu. In
othei woius, theie will typically be a gieatei uiffeience between what is expecteu of applicants anu
the BFA in fin-fish anu shell-fish applications wheie the fin-fish application is foi an opeiation in a
yellow oi ieu aiea than theie will be wheie the fin-fish application is in a gieen aiea.
Nothing heie shoulu be inteipieteu as inuicating that all shell-fish applications will be easily
appioveu oi that some shell-fish applications will not piesent uifficult issues oi face significant
opposition. We heaiu uiiectly fiom membeis of communities who aie veiy conceineu about shell-
fish aquacultuie anu moie paiticulaily about its expansion anu scale, paiticulaily in ielation to its
potential to auveisely affect othei useis of public wateis anu shoie lines.
Beie, oui only point is that the licensing piocess we have pioposeu will geneially opeiate
uiffeiently when applieu to fin-fish anu shell-fish aquacultuie in ways that ieflect the uiffeiences
that geneially exist between those two bianches of aquacultuie, paiticulaily as iegaius theii
iespective potential to auveisely affect the enviionment. Neanwhile, we believe the licensing
piocess we have pioposeu is one that can accommouate the ieal uiffeiences that can exist between
the potential impact of uiffeient shell-fish opeiations consiueiing issues such as theii uiffeient
scales, the technology they use, anu the uegiee anu natuie of theii potential impact on othei useis
of public wateis.

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As alieauy inuicateu, the licensing piocess will be uiffeient foi fin-fish applications uepenuing on
whethei they aie in gieen, yellow oi ieu aieas. This section uiscusses those uiffeiences in moie
uetail. Fiist, we point out again that the staiting place foi the licensing piocess will be uiffeient
uepenuing on whethei oi not an application ielates to an aiea oi a site within an aiea that has been
pieviously classifieu. Wheie it is, that classification will be the staiting place foi the licensing
piocess. Wheie the application ielates to a site that has not been pieviously classifieu, the staiting
point foi the licensing piocess is foi the BFA to apply the ciiteiia foi iuentifying gieen, yellow anu
ieu aieas to classify the specific site that is the subject of the application.
The geneial iule shoulu be that applications foi the licensing of fin-fish aquacultuie shoulu be
ueteimineu thiough an aujuuicative heaiing. As we have alieauy inuicateu, an auministiative
heaiing may insteau be useu wheie the application ielates to a site that was pieviously classifieu as
a gieen aiea oi in a gieen aiea eithei in a stiategic assessment oi a pievious licence application
piocess. The iationale foi this is that the level of public paiticipation that woulu have been
89
pioviueu though the eailiei piocess justifies the use of an auministiative heaiing in the subsequent
piocess. The BFA woulu howevei have the uiscietion to conuuct an aujuuicative heaiing anu the
uuty to consiuei whethei case-specific factois waiiant an aujuuicative heaiing uespite the eailiei
paiticipation oppoitunities.
Regaiuless of whethei an auministiative oi aujuuicative heaiing is useu to consiuei an application
in a gieen aiea, the staiting assumption foi the licensing piocess in gieen aieas is that the pioposeu
site is well suiteu foi fin-fish aquacultuie anu that theie aie no significant competing use issues that
cannot be iesolveu. 0ne pioceuuial consequence may be that the BFA sets a time-line foi the
completion of the heaiing piocess anu a ienueiing of a uecision that is ielatively expeuitious.
Bowevei, the piocess woulu be expecteu to auuiess infoimation biought foiwaiu oi iaiseu in the
licensing piocess that calleu into question the assumption of the site's suitability foi the pioposeu
fin-fish opeiation. Such issues coulu be iuentifieu by the BFA oi by membeis of the public. In eithei
case, the licensing piocess woulu have to auuiess them just as it woulu if they aiose in applications
foi sites in yellow oi ieu aieas.
Foi applications in aieas pieviously classifieu as yellow oi ieu aieas, oi foi sites that aie classifieu
as yellow oi ieu in the licensing piocess itself, an aujuuicative heaiing woulu be manuatoiy. The
question will be what kinu of aujuuicative heaiing is calleu foi anu what auuitional pioceuuial
steps shoulu be taken to ensuie applications foi sites in yellow oi ieu aieas aie analyzeu with
sufficient iigoui anu oppoitunities foi community anu public input.
The staiting assumption foi yellow aieas woulu be that theie aie significant questions about the
biophysical suitability of the pioposeu opeiation anuoi with its potential impact on othei
iesouices oi uses. The expectation is that no licence will be gianteu unless these significant
questions aie satisfactoiily answeieu. At the same time, the assessment of applications in yellow
aieas woulu be expecteu to take seiiously the possibility that the conceins piesent in yellow aieas
aie capable of being auuiesseu by opeiations that aie caiefully uesigneu, implementeu anu
manageu to auuiess the conceins.
The staiting assumption foi applications foi ieu aieas is that fin-fish aquacultuie will only be
licenseu in exceptional ciicumstances. This assumption ieflects the iationale foi a ieu aiea
classification, which is that it is biophysically inappiopiiate foi fin-fish aquacultuie anuoi that
theie is cleai pioof that fin-fish aquacultuie will haim othei impoitant activities. While the
licensing piocess woulu neeu to be open that an applicant has uevelopeu a pioposal foi a fin-fish
opeiation in a ieu aiea that satisfactoiily auuiesses these seiious conceins, it woulu iequiie veiy
convincing pioof befoie issuing a licence foi a fin-fish opeiation in a ieu aiea.
In shoit, the licensing piocess must give a level of sciutiny to applications foi fin-fish licences in
yellow anu ieu aieas that is piopoitionate to the questions, issues anu conceins iaiseu by such
application. This is the piimaiy ieason why we have saiu an aujuuicative heaiing woulu be
iequiieu foi all such applications. In auuition, the fiamewoik we have pioposeu will give the BFA
auuitional tools to ensuie such applications aie sciutinizeu with appiopiiate iigoui. Foi example:
90
It coulu use the scieening stage of the piocess to ensuie that applications foi yellow oi ieu
aieas uo not pioceeu to the heaiing stage unless theie is some piospect foi theii success at
that stage of the piocess;
It coulu engage in moie extensive anu moie uetaileu consultations with othei iegulatoiy
agencies than woulu typically be the case foi application in gieen aieas oi foi shell-fish
applications;
It coulu appoint an inuepenuent thiiu paity oi paities to conuuct consultations on the
pioposeu aquacultuie opeiation, pioviue inuepenuent analysis on the pioposal's technical
aspects, pioviue othei kinus of specializeu technical auvice, oi to conuuct some oi all of the
heaiing;
It coulu ueteimine that assessment of the applications iequiies focuseu anu moie uetaileu
scientific woik on the biophysical conuitions of the pioposeu site oi on the site's bioauei
ecosystem oi fuithei socio-economic ieseaich on the potential impact on othei iesouices
uses oi useis;
It coulu specify a longei time-line foi the completion of the licensing piocess anu foi the
completion of the heaiing stage of the piocess than it typically woulu foi fin-fish
applications in gieen aieas oi foi shell-fish applications;
It coulu pioviue gieatei latituue foi paiticipants in the heaiing piocess to challenge the
applicant than it might in a case involving an application foi a licence in a gieen aiea by, foi
example, allowing wiuei cioss-examination than woulu noimally be alloweu; anu
Wheie it ueteimines aftei a heaiing that a licence may be appiopiiate, it coulu issue its
uecision in uiaft foim to pioviue the public with an oppoitunity to comment (foi example,
of Su uays uuiation) on the uiaft uecision, aftei which the BFA woulu make its final
uecision.
In auuition, the uuty to give ieasons foi its uecisions will of couise be applicable to the BFA in
yellow anu ieu aiea applications just as it will be foi gieen aiea anu shell-fish applications. In
piactical teims howevei, it will impose a heaviei buiuen of justification on BFA wheie it ueciues to
giant a licence given that it will be haiuei to show the licensing piinciples aie auuiesseu wheie a
licence is given foi a yellow oi ieu aiea than it will be foi a licence given in a gieen aiea. This is
simply a function of the fact that theie will be moie ioom to question the appiopiiateness of
licensing in yellow anu ieu aieas. This means that theie will typically be moie ioom to question the
justification pioviueu by the BFA thiough the appeal anu juuicial ieview piocesses anu outsiue of
those piocesses than theie woulu be in gieen aiea oi shell-fish licensing uecisions.
It shoulu also be kept in minu that in auuition to aujusting the piocess foi consiueiation of
applications in yellow oi ieu aieas, the BFA will have the authoiity wheie it ueciues to licence an
opeiation in a yellow oi ieu aiea to uo so on teims anu conuitions that go beyonu the teims anu
conuitions that woulu be applieu to licences in gieen aieas oi to shell-fish licences. uiven the
highei iisk of haim to the enviionment oi to othei uses that will be piesent when fin-fish
aquacultuie is licenseu in yellow oi ieu aieas, it woulu be expecteu that these auuitional teims anu
conuitions woulu impose a moie stiingent level of iegulatoiy contiol than woulu be the case with
opeiations in gieen aieas.
91
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Thiough oui piocess, people iefeiieu to licensing anu leasing as closely associateu oi even as
inteichangeable concepts. This makes a ceitain amount of sense given that a lease is cuiiently
iequiieu to incluue the teims anu conuitions containeu in a licence. Piesumably, this is to ensuie
that the BFA has the powei to ievoke a lease when a licence is ievokeu anu vice-veisa.
We heaiu a numbei of valiu conceins that to oui minu aie uistinct to leases anu how anu when they
aie issueu, monitoieu anu enfoiceu. The following summaiizes the conceins anu the
coiiesponuing iecommenuations.
Fiist, conceins weie iaiseu about the numbei of lease that aie issueu anu aie left in the hanus of
inuiviuuals anu businesses that aie not involveu in active aquacultuie. 0ne aspect of the concein is
that this pievents uevelopment of the site by otheis. Anothei is that it cieates an appiehension in
communities that they aie suiiounueu by potential aquacultuie uevelopment. Theie is a ielateu
concein that applications foi a licence aie pie-ueteimineu when maue by an applicant who alieauy
has a lease to the pioposeu aquacultuie site.
To auuiess these conceins, we iecommenu that a lease be issueu aftei anu only when a licence to
conuuct aquacultuie has been gianteu. We also iecommenu that leases ietuin to the Ciown when a
licence is ievokeu, lapses oi is ielinquisheu.
Su
This appioach will emphasize that the licence is the
funuamental authoiity to conuuct aquacultuie anu the iole of the lease is the uistinct one of giving
the licence holuei possession of the site at which they intenu to conuuct the aquacultuie authoiizeu
by the licence.
Seconu, we heaiu conceins about the uifficulty people have in obtaining infoimation about the
location anu bounuaiies of leases. To use but one example of the kinus of uifficulties cieateu by the
cuiient inaccessibility of this infoimation, puichaseis of a iesiuential piopeity may only leain that
the piopeity is immeuiately aujacent to an aquacultuie lease aftei they have completeu the
puichase of the piopeity when the site is eithei activateu oi ieactivateu. Anothei kinu of example
we weie fiequently given ielateu to the pioblems boateis have expeiienceu in obtaining
infoimation about the extent of lease in ielation to navigational ioutes.
The BFA must take steps to make infoimation on the location anu bieauth of leases much moie
ieauily available to lanuowneis anu useis of the coastal wateis than is cuiiently the case. Although
lease holueis shoulu be iequiieu to uo moie in this iegaiu, the BFA shoulu take a much moie
pioactive iole in making infoimation on leases of public space ieauily available to the public, such
as thiough a map ieauily available on the inteinet.

30
1he 8oundLable gave quallfled supporL Lo a relaLed recommendaLlon LhaL seeks Lo balance Lhe lnLeresLs of all
lnvolved: 1he currenL sysLem of lease Lenure should be revlewed Lo ensure LhaL declslons Lo allow Lhe
malnLenance of a lease on an lnacLlve slLe balances Lhe lnLeresLs of Lhe leaseholder, oLher aquaculLure buslnesses
LhaL may wlsh Lo develop Lhe slLe, Lhe ad[acenL communlLles, and oLher marlne resource uses and users." 1he
supporL for Lhls provlslon was nearly unanlmous.
92
Thiiu, gieatei claiity must be on the iights of lease holueis in ielation to iights of otheis in leaseu
wateis. Although a lease of ciown wateis foi aquacultuie gives a significant uegiee of contiol ovei
those wateis to the holuei of the lease, it uoes not give the lease holuei owneiship of the wateis. In
othei woius, wateis that aie leaseu foi aquacultuie continue to be public wateis.
In vaiious community meetings anu in meetings with a numbei of stakeholueis, we weie tolu that
one of the pioblems with the cuiient iegulatoiy fiamewoik is that leases give oi aie inteipieteu by
lease holueis to give lease holueis too much contiol ovei leaseu wateis. Nost fiequently, the issue
was the iestiiction of boating in the lease aiea oi in pioximity to the lease aiea.
Fiom an inuustiy peispective we heaiu that iestiicting access to the leaseu aiea was neeueu to
piotect equipment anu stock anu to comply with essential biosecuiity piotections.
Baseu on what we have heaiu, oui conclusions on the iights of the holueis of aquacultuie leases
anu the limitations that those iights place on public access to leaseu wateis by otheis, aie as
follows:

Theie is not as much claiity as theie shoulu be as to exactly what iights aie
confeiieu by a lease anu on the natuie anu extent to which those iights limit the
iights of otheis in iespect of what aie still public wateis even when leaseu. The
extent anu exclusivity of the iights of possession anu use given unuei a lease
ielative to uses othei than aquacultuie is the key question. This shoulu be one of
the issues auuiesseu in the teims of a lease, along with the iequiiement to holu anu
comply with a valiu licence.
Theie is not as much claiity as theie shoulu be on the iationale foi the iestiictions
which aquacultuie leases place on the iights of otheis, which in tuin peipetuates
the peiception that the iestiictions aie aibitiaiy anu unjustifieu.
Noie caie shoulu be taken to ensuie that the iights given to leaseholueis to contiol
public wateis foi the puipose of conuucting aquacultuie aie only as iestiictive of
the continuing access of otheis to public wateis as is necessaiy to auuiess the
legitimate neeus of the inuustiy.
The law shoulu iequiie that all leases be configuieu in such a way as to pioviue
ieasonable accommouation foi boateis. The appioach useu in Piince Euwaiu
Islanu, wheie a manuatoiy navigational channel is incoipoiateu into eveiy lease,
may be an appioach to emulate in Nova Scotia.
Asseition by leaseholueis of iights of contiol ovei public wateis that go beyonu
theii actual iights shoulu be tieateu by the BFA as a iegulatoiy issue.

Fouith, we also heaiu questions about lease bounuaiies anu theii enfoicement. Foi example, in
seveial communities, we weie tolu that anchoi lines foi aquacultuie pens extenu beyonu the
bounuaiy of the opeiatoi's lease but that neithei piovincial noi feueial iegulatois have uone
anything about it. Those who iaiseu this with us objecteu to what they saw as obvious non-
compliance with the law. Theii auuitional concein was that aquacultuie companies weie being
93
alloweu to limit the use of public wateis by otheis beyonu what was authoiizeu by theii lease. We
think it obvious that lease bounuaiies shoulu be enfoiceu whethei oi not the violation of the
bounuaiies inteifeies with the activities of otheis. Noieovei, we think it impoitant to emphasize
that the BFA is iesponsible foi enfoicing the bounuaiies of the leases it issues whethei oi not an
allegeu violation of those bounuaiies also violates laws enfoiceu by the Coast uuaiu oi othei
feueial iegulatois.
We weie also askeu to consiuei a numbei of conceins about the tiansfei of licences. We ueal with
most of these latei in the section heaueu "Tiansfeis, Expansions, 0thei Changes". Beie, we ueal
only with the concein expiesseu by some that the tiansfei of a lease (oi a licence) shoulu be
something that has to be appioveu unuei the iegulatoiy fiamewoik. We agiee with that viewpoint.



















94
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We weie tolu by inuustiy iepiesentatives that one of the majoi pioblems cieateu foi the inuustiy
by the cuiient iegulatoiy fiamewoik is the limiteu tenuie it pioviues to licenseu opeiatois. In
Nova Scotia, a fiist licence is 1u yeais. Each subsequent licence is foi S yeais. In contiast, in New
Biunswick, licences aie foi S yeais, howevei, leases as issueu foi peiious of 1u anu 2u yeais
iespectively foi shell-fish anu fin-fish. In auuition, appiovals to opeiate unuei the :+(*"
!"#$%&"'(") 67) aie issueu foi S yeais. Theie aie a gieat vaiiety of appioaches to the uuiation of
licences, leases anu appiovals in othei juiisuictions.
The pioblem shoit licensing peiious cieate foi inuustiy is one of financing. We weie tolu that
financing is moie uifficult anu expensive than it otheiwise woulu be uue to the concein of lenueis
that a licence may not be ieneweu befoie the opeiatoi has the oppoitunity to iepay the amount
that typically has to be boiioweu to finance aquacultuie opeiations. We weie tolu that the baiiiei
this cieates foi giowth in the inuustiy is accentuateu by the fact that the goveinment uoes less in
Nova Scotia to make woiking capital available to the inuustiy than uoes the goveinments of each of
the othei Atlantic Piovinces.
We assume that the cuiient fiamewoik staits with a 1u yeai licence as an accommouation to the
financing neeus of inuustiy. It is howevei uifficult to unueistanu why it subsequently limits
ienewals to five yeais since the neeu foi financing will iemain anu given that the uecision to ienew
can be maue with the benefit of bettei infoimation on both the opeiatoi anu the site than woulu be
available foi the initial licensing uecision.
We think the licensing fiamewoik shoulu give longei secuiity of tenuie to aquacultuie businesses.
It shoulu uo so howevei by cieating stiongei connections between the uuiation anu ienewal of
licences anu the ability of licence holueis to uemonstiate theii suitability as opeiatois anu the
suitability of theii opeiations foi theii location. The concept is one of "piogiessive licensing" unuei
which opeiatois who successfully uevelop sites in accoiuance with the iegulations, anu opeiatois
who achieve highest stanuaiu thiiu paity ceitification eain ienewal unuei longei-teim licences anu
associateu leases. In contiast, opeiatois who by theii peifoimance show they aie not willing oi
able to opeiate in compliance with the iegulations anu aie not showing leaueiship in low impact
aquacultuie eithei lose theii licence oi aie limiteu to ienewal on moie limiteu teims, uepenuing on
the natuie anu the extent of theii failuies to meet anu maintain iegulatoiy iequiiements.
Specifically, we iecommenu that the tenuie of appioveu aquacultuie opeiations be stiuctuieu as
follows:
i. The initial lease woulu be gianteu foi 2u yeais.
ii. The initial licence woulu be compiehensively ievieweu in light of the success of the
opeiatoi in establishing anu conuucting a site ievieweu aftei the fiist giowing cycle
to ensuie aquacultuie in accoiuance with the licence as oiiginally gianteu geneially
meets iegulaily iequiiements, incluuing enviionmental peifoimance iequiiements.
93
While teimination of the licence (anu lease) coulu occui at this time (as it coulu at
any othei time wheie waiianteu by sufficiently seiious non-compliance), the moie
typical outcomes woulu be eithei foi the continuation of the licence on its oiiginal
teims anu conuitions oi an amenument of those teims anu conuitions to bettei align
the scale anu natuie of the licenseu activities with the biophysical anu othei
conuitions of the site.
iii. Renewal of licences woulu be ueciueu by an open, tianspaient anu paiticipatoiy
piocess which woulu give membeis of the public ample oppoitunity to be infoimeu
about anu to contiibute to the piocess.
iv. The appiopiiate length of licence ienewals shoulu be ueteimineu baseu on the
enviionmental peifoimance of the site uuiing the pievious giowing cycle, anu the
compliance iecoiu of the opeiatoi. The licence given on ienewal woulu be foi a teim
that is compaiable to the maximum teims foi which aquacultuie sites aie licenseu
in othei piovinces of Atlantic Canaua foi well peifoiming sites with compliant
opeiatois. Sites with less than iueal tiack iecoius that aie still consiueieu to be
capable of opeiating iesponsibly anu within acceptable paiameteis woulu be
gianteu shoitei ienewals.
v. Any licence, of couise, is subject always to the authoiity of the Ninistei to cancel foi
iegulatoiy infiactions oi a pattein of iegulatoiy non-compliance that woulu make
ievocation an appiopiiate, faii anu just sanction.















96
P` J%,#12/%1L .M=,#1*&#1L K$3/% :3,#5/1

We have uiscusseu the impoitance of social licence in vaiious paits of this iepoit. Pait of
iecognizing the impoitance of social licence is that the ielationship between the opeiatoi anu those
who have a stake in how a facility is iun is ciitical to social licence. This means that theie is a
significant iisk that social licence, as well as the potential foi mutually suppoitive ielationships
between aquacultuie opeiatois anu othei useis of coastal aieas will be uisiupteu in case of
tiansfei, expansion oi othei changes to the teims anu conuitions of a lease anu licence. As a iesult,
it is impoitant that the piocess foi tiansfeis in owneiship oi opeiatoi, anu change in teims anu
conuitions be cleai, anu that it be open anu tianspaient.
S1

In oui view this means that any iequest foi tiansfei oi foi a change in teims anu conuitions shoulu
be maue public as soon as it is ieceiveu anu consiueieu. Caieful consiueiation will have to be given
to whethei the pioposeu changes have the potential to inciease the impact on natuial systems oi
on othei coastal useis. A key factoi in ueciuing whethei to appiove a tiansfei in owneiship oi
opeiatoi is whethei the new opeiatoi oi ownei woulu inteiact constiuctively with othei coastal
useis anu affecteu communities.














31
1he 8oundLable expressed parLlal supporL for a recommendaLlon LhaL, lf a slLe lease ls Lransferred beLween
operaLors or Lhere ls a change ln specles grown and Lhere may be a subsLanLlal change ln envlronmenLal lmpacL, a
revlew of Lhe llcense or permlL should be carrled ouL lncludlng publlc lnpuL. 1here should also be a publlc commenL
perlod aL Lhe Llme of llcence renewal." (age 13 of Lhe llnal 8oundLable 8eporL)
97
Wa ;%&$/)$*&# 2&% N*-' @,-0&# ;&=(-,$*&#1

As we have explaineu eailiei, it is cleai to us that the iegulatoiy fiamewoik foi aquacultuie must
pay paiticulai attention to the potential inteiactions of salmon maiine-baseu salmon aquacultuie
with wilu salmon. It is cleai that concein foi wilu salmon populations is an impoitant pait of the
global woik taking place in multiple foiums to ieuuce the enviionmental impact anu impiove the
sustainability of fin-fish aquacultuie, incluuing by impioving the iegulation of aquacultuie. If Nova
Scotia wants to be pait of this path foi the inuustiy's futuie, it neeus to be uoing its pait to ensuie
aquacultuie is conuucteu in Nova Scotia with uue iegaiu foi the health anu well-being of Nova
Scotia's wilu salmon populations.
The piotection of wilu salmon populations is one of the objectives of the cuiient iegulatoiy
fiamewoik. We believe howevei that the fiamewoik neeus to be stiongei in ielation to this
objective. This is one of the ieasons why we have iecommenueu the explicit inclusion of
piecaution into the iegulatoiy fiamewoik. Noie bioauly, the legitimate conceins about how the
giowth anu conuuct of the inuustiy might impact wilu salmon aie among the conceins that have leu
us to make the iecommenuations we have maue elsewheie in this uocument on a numbei of coie
elements of the iegulatoiy fiamewoik incluuing on site selection anu utilization, fallowing anu
stocking uensities, anu fish health anu well-being. Although all of oui iecommenuations on these
anu on othei topics aie uesigneu to ensuie the iegulatoiy fiamewoik contiibutes to the inuustiy's
geneial piogiess towaius a low impacthigh value futuie, they aie intenueu moie specifically to
ensuie that aquacultuie is conuucteu with uue iegaiu foi the health anu well-being of Nova Scotia's
wilu salmon populations.
The iegulatoiy fiamewoik shoulu, howevei, also incluue a numbei of elements that aie moie
specifically uiiecteu to the piotection of wilu salmon. To that enu, we have alieauy iecommenueu
that piotection of wilu salmon populations be listeu in the legislative fiamewoik as one of the
ciiteiia to be consiueieu in leasing anu licensing uecisions. Beie we make two fuithei
iecommenuations foi specific piotection of wilu salmon.
The fiist of these is that the iegulatoiy fiamewoik shoulu be cleai anu explicit about the neeu foi
appiopiiate physical sepaiation between maiine-baseu aquacultuie anu salmon iiveis anu known
salmon migiation ioutes. This coulu be a fixeu sepaiation uistance. Such an appioach is attiactive
because it is simple anu uoes not uepenu on the exeicise of iegulatoiy uiscietion. The pioblem
with such appioaches howevei is that they invaiiably pioviue too much iestiiction in some
applications anu too little in othei applications. They tenu not to ieflect the vaiiable ciicumstances
that can call foi moie iestiiction in some cases anu less iestiiction in otheis than woulu be
pioviueu by an acioss-the-boaiu iule. The othei uifficulty is that such appioaches often uo not
evolve as ciicumstances (such as changing technology) change. We think a bettei appioach woulu
be one that allows the extent of the physical sepaiation that is implementeu into the licensing of
any paiticulai site to be ueteimineu on a case by case basis but unuei a legislative fiamewoik that
makes it cleai that appiopiiate uistances between maiine-baseu aquacultuie anu wilu salmon must
be establisheu anu maintaineu thiough the leasing anu licensing piocess.
98
0f couise, the BFA woulu continue to be bounu by any uecisions taken by the BF0 in ielation to
minimum piotection foi wilu salmon. Wheie the BF0 uoes not make a uecision but insteau
pioviues auvice to the BFA, it woulu continue to be the case that BFA woulu iely heavily on that
auvice. But as we have uiscusseu eailiei, it shoulu be a cleai element of the iegulatoiy fiamewoik
that the BFA will go beyonu what is iecommenueu by the BF0 wheie the BFA ueteimines that an
auuitional level of piotection foi wilu salmon is calleu foi.
0ui seconu iecommenuation foi specific attention to the piotection of wilu salmon is that the
iegulatoiy fiamewoik shoulu ueal moie extensively with the pievention of escapes. The cuiient
fiamewoik iequiies licencees to iepoit eveiy escape, which is a moie uemanuing iepoiting
iequiiement than othei juiisuictions, which only iequiie escapes to be iepoiteu when they involve
a ceitain numbei of fish. Conceins weie expiesseu, howevei, about whethei this iequiiement is
being complieu with oi enfoiceu. Theie is also scepticism about whethei it coulu be enfoiceu. The
moie seiious concein in oui view is that the iegulatoiy fiamewoik shoulu uo moie to ensuie
escapes aie being pieventeu. It shoulu iequiie opeiatois to auopt, implement anu tiack anu iepoit
on the peifoimance of a compiehensive containment system that aims to pievent escapes to the
gieatest extent that is piacticable using best management piactices anu best available technology.
Nany encouiageu us to iecommenu an appioach in Nova Scotia similai to the one in place in
Naine.
S2
The following is a uesciiption of what is calleu a containment management system in that
state:
A CNS is a piocess contiol system built on seven piinciples which, when implementeu
togethei, foim a logical anu iealistic system foi minimizing the escape of faimeu salmon.
CNS systems aie baseu on a Bazaiu Analysis Ciitical Contiol Point (BACCP) system anu the
aquacultuie inuustiy's 0ctobei 1998 Coue of Piactice. BACCP systems weie oiiginally
uevelopeu by NASA to ensuie quality contiol anu safety in the space piogiam. The BAACP
appioach has been auopteu by the Foou anu Biug Auministiation Foou Safety Piogiam anu
has been useu wiuely in the seafoou piocessing inuustiy. It is theiefoie familiai to the
inuustiy anu the feueial iegulatois. BAACP systems consist of a company specific, business
confiuential BAACP plan, a papei tiail that uocuments opeiational peifoimance, anu an
auuiting system. A stanuaiu Containment Nanagement System will be uevelopeu foi the
Naine salmon faiming inuustiy baseu on the following seven piinciples: 1. Assessment of
the hazaius anu iisks. 2. Beteimination of ciitical contiol points. S. Establishment of ciitical
limits anu toleiances. 4. Establishment of limit monitoiing pioceuuies anu scheuules. S.
Establishment of pieueteimineu coiiective actions. 6. Establishment of iecoiu keeping
systems anu pioceuuies. 7. Establishment of a veiification system."


32
1he 8oundLable expressed parLlal supporL for Lhe recommendaLlon LhaL, 1he regulaLory framework should
lnclude a salmonld ConLalnmenL ManagemenL Code slmllar Lo Lhe Malne Model whlch lncludes marklng flsh for
slLe-speclflc ldenLlflcaLlon. 1he Code should address Lhe use of hlgh quallLy Lwlne reslsLanL Lo uv Lo prevenL
escapes." 1he prlmary facLor prevenLlng greaLer supporL for Lhls recommendaLlon was a lack on lnformaLlon on
Lhe model LhaL was noL addressed glven Lhe 8oundLable's Llme consLralnLs. (8oundLable llnal 8eporL, page 24)
99
The following piovisions fiom the geneial uischaige peimit unuei which inuiviuual aquacultuie
opeiations aie appioveu in Naine spells out the obligations of appioveu sites with iespect to the
auoption of a containment management system as follows:

6. Containment management system. The peimittee must employ a fully functional maiine
Containment Nanagement System (CNS) uesigneu, constiucteu, opeiateu, anu auuiteu so as to
pievent the acciuental oi consequential escape of fish to open watei.
1. a) Each CNS plan must incluue a site plan oi schematic; site plan uesciiption;
pioceuuies foi inventoiy contiol, pieuatoi contiol, escape iesponse, unusual event
management, anu seveie weathei; piovisions foi employee tiaining, auuiting methous,
anu iecoiu keeping iequiiements. The CNS must iuentify ciitical contiol points wheie
escapes coulu potentially occui, specific contiol mechanisms foi each of these points,
anu monitoiing pioceuuies to veiify the effectiveness of contiols.
2. b) The peimittee must piepaie a wiitten CNS plan piioi to fish being fiist intiouuceu
into a facility anu must maintain a cuiient copy of the plan at the facility.
S. c) The CNS must be auuiteu by a qualifieu thiiu paity at least once pei calenuai yeai foi
all facilities with fish stockeu in net pens.
4. u) No latei than Becembei S1 of each calenuai yeai, the peimittee must submit a
wiitten iepoit of each annual auuit iequiieu by section 6.c of this conuition to the
Bepaitment.
S. e) The CNS must also be auuiteu by a qualifieu thiiu paity within thiity (Su) uays of a
iepoitable escape iequiieu by section 7 of this conuition oi notification that a
commeicially-ieaieu Atlantic salmon is founu in a iivei within the iange of the uulf of
Naine uistinct population segment of Atlantic salmon, as uefineu by the Seivices. The
Bepaitment, in consultation with the Aimy Coips of Engineeis anu the Seivices, may
exempt a facility fiom any auuitional thiiu paity auuits when the facility fiom which the
fish escapeu can be iuentifieu oi when ciicumstances piecluue the possibility that the
facility was the souice of the escapeu fish. The peimittee must submit a wiitten auuit
iepoit to the Bepaitment, with a copy to the Seivices, within thiity (Su) uays of the
facility becoming awaie that an auuit is necessaiy.
6. f) Any time that a CNS auuit iuentifies ueficiencies, the wiitten iepoit must contain a
coiiective action plan, incluuing a timetable foi implementation anu piovisions foi ie-
auuiting, unless waiveu by the Bepaitment, to veiify completion of all coiiective
actions.
7. g) The peimittee must maintain foi a peiiou of at least five (S) yeais complete iecoius,
logs, iepoits of inteinal anu thiiu paity auuits anu uocuments ielateu to the CNS foi
each facility. The submission of stanuing inventoiy at the facility, incluuing all tiansfeis
in anu out, losses associateu with uisease, pieuation oi escapes as iepoiteu to the
Bepaitment of Naiine Resouices at the pen level of uetail on a monthly basis puisuant
to the iequiiements of Leases anu Special Licenses, 12 N.R.S.A. 6u77, must meet the
iequiiements of the CNS.
100
An auuitional element of Naine's system is that all faimeu salmon aie iequiieu to have a genetic
maikei that allows iecaptuieu fish to be tiaceu back to the faim fiom which they escapeu. We have
been tolu anu we have ieau that this is a veiy poweiful iegulatoiy tool foi monitoiing the
effectiveness of each company's containment system. Inueeu, we have been tolu that this
iequiiement accounts foi the viitual elimination of escapes fiom Naine's faims.
We note the Rounutable iecommenuation that "The iegulatoiy fiamewoik shoulu incluue a
salmoniu Containment Nanagement Coue similai to the Naine Nouel which incluues maiking fish
foi site-specific iuentification. The Coue shoulu auuiess the use of high quality twine iesistant to 0v
to pievent escapes". This iecommenuation ieceiveu only paitial suppoit. Theie was a concein on
the pait of some Rounutable membeis that they uiu not have enough infoimation about Naine's
system anu also a concein that iegulations shoulu not piesciibe the use of a ceitain kinu of twine.

We unueistanu that Naine's system to pievent escapes is an elaboiate one that may be expensive to
auopt in Nova Scotia. This may be especially tiue of the genetic tiacking system. We iecognize that
not all of the Naine system may be iequiieu, suitable oi feasible foi auoption in Nova Scotia. We
also iecognize that a Nova Scotia veision of Naine's appioach woulu have to be implementeu ovei
time. Neveitheless, we think that the iegulatoiy fiamewoik foi fin-fish aquacultuie in Nova Scotia
shoulu encompass a system to pievent escapes that is compaiable to the one that has been
successfully implementeu in Naine, iecognizing that it woulu not be expecteu to be iuentical to
Naine's system in all iespects. The key is to uevelop anu implement a compiehensive anu
integiateu system that is equally effective as the Naine system is in pieventing escapes, not to
uuplicate the mechanisms Naine has useu to achieve that outcome.













101
WP O&#*$&%*#5 :&0=-*,#)/ ,#' .#2&%)/0/#$ ;%&H*1*&#1

Concein about the will anu capacity of the piovincial goveinment to iequiie the inuustiy to comply
with iegulations was one of the conceins we heaiu most fiequently. It lays at the centie of the
scepticism that many have about whethei a new iegulatoiy fiamewoik will make a uiffeience.
In oui view, a new iegulatoiy fiamewoik will not obtain the public tiust anu confiuence it neeus to
be successful unless it incluues a stiong commitment to effective monitoiing of compliance anu to
effective anu tianspaient enfoicement. Without this commitment anu sustaineu action that
matches the commitment, iegulation will not make the contiibution to the social licence of the
inuustiy that iegulation must make if the inuustiy is to uevelop with stiongei suppoit in the
communities in which it opeiates than it cuiiently enjoys. In auuition, although we weie not taskeu
to conuuct the kinu of opeiational analysis of the cuiient iegulatoiy fiamewoik that woulu allow us
to inuepenuently evaluate its effectiveness, what we have heaiu in oui piocess leaus us to concluue
that monitoiing anu enfoicement must be significantly elevateu anu enhanceu if the iegulatoiy
fiamewoik we have pioposeu is to accomplish the iange of objectives in this sectoi that iegulation
must accomplish.
We have alieauy maue many iecommenuations that aie eithei intenueu to impiove monitoiing anu
enfoicement oi that will have a positive effect on monitoiing anu enfoicement if they aie effectively
implementeu. Foi example, we have iecommenueu that:
a significant inciease in iegulatoiy capacity, a goou ueal of which shoulu go uiiectly into
monitoiing anu enfoicement;
the Bepaitment of Enviionment shoulu become iesponsible foi the auministiation of the
Enviionmental Nonitoiing Piogiam to ensuie the inuepenuence anu iigoui of that aspect of
monitoiing of the inuustiy's activities;
SS

the BFA's iegulatoiy activities be sepaiateu within BFA fiom its activities in suppoiting anu
piomoting the uevelopment of the inuustiy;
the legislative fiamewoik ielies less on iegulatoiy uiscietion anu moie on cleai legislative
statement both of iegulatoiy iequiiements anu of the piocess to be useu in key paits of the
iegulatoiy piocess, incluuing the leasing anu licensing piocess;
tianspaiency to make iegulatois accountable foi how they exeicises theii iegulatoiy
manuate anu the inuustiy moie accountable to the public foi its compliance with iegulatoiy
iequiiements; anu
the ienewal of licences anu leases shoulu take account of the tiack iecoiu of opeiatois in
complying with iegulations.
In this section, we make iecommenuations moie uiiectly ielateu to how compliance with the
pioposeu iegulatoiy fiamewoik shoulu be monitoieu anu enfoiceu.

33
1he 8oundLable also gave quallfled supporL Lo Lhe relaLed recommendaLlon LhaL, All LnvlronmenLal MonlLorlng
rogram daLa should be made avallable on a webslLe ln a Llmely manner." (8oundLable llnal 8eporL, page 29)
102
Cuiiently, the BFA has six inspectois. 0ui infoimation is that only one of these is fully tiaineu foi
inspections on aquacultuie. Noie fully tiaineu inspectois neeu to be employeu anu put into the
fielu.
Cuiiently, theie is a minimum of one scheuuleu inspection in each yeai foi each site. 0thei
inspections happen in iesponse to complaints. The numbei of inspections neeus to be incieaseu.
Scheuuleu inspections shoulu be complimenteu by a significant numbei of unscheuuleu inspections.
The capacity of the BFA to iesponu in a timely way to complaints neeus to be incieaseu.
Inspection shoulu be automatic aftei changes to geai configuiations oi to the setup of a site. They
shoulu be automatic aftei significant stoim events.
The BFA shoulu have auuitional options foi caiiying out inspections. It neeus auuitional vessels oi
moie access to vessels othei than the vessels of the inuustiy. It shoulu exploie the iole that aeiial
suiveillance coulu play in the monitoiing of the inuustiy.
Naiine-baseu fin-fish aquacultuie shoulu geneially be subject to moie inspections anu to moie
unscheuuleu inspections anu geneially to a highei level of iegulatoiy sciutiny.
S4
This is because of
theii gieatei potential to cause enviionmental haim anu haim to wilu fish anu maiine animals if
they aie not conuucteu in accoiuance with iegulatoiy iequiiements. Within each sectoi of
aquacultuie, the level of iegulatoiy attention that each opeiation ieceives shoulu ieflect its tiack
iecoiu of compliance. It shoulu also ieflect its ielative potential to cause seiious haim to iegulatoiy
objectives if it is not conuucteu in accoiuance with the iegulations. Foi example, a fin-fish site
opeiating in a ielatively open bay with a high iate of flushing anu a ielatively ueep bottom woulu
ieceive moie attention than a site opeiating in a setting wheie the maintenance of oxic conuitions
may be moie uifficult even when the ciicumstances of the site aie piopeily taken into account in
the teims anu conuitions on which the site was appioveu.
SS

Essentially, what we aie iecommenuing is an appioach to inspections that incluues moie
inspections but taigets the incieaseu inspections to the kinus of aquacultuie anu to the opeiatois
that waiiant an auuitional level of sciutiny. To uo that, an appioach such as the BACCP (Bazaiu
Analysis anu Ciitical Contiol Point) appioach might be useu to calibiate the ielative amount anu
kinu of monitoiing anu enfoicement that woulu be uiiecteu to uiffeient paits of the inuustiy anu to

34
1he 8oundLable gave parLlal supporL Lo Lhe ldeas LhaL, MonlLorlng should be conducLed by an lndependenL
Lhlrd parLy" and MonlLorlng should be Lhe responslblllLy of Lhe operaLor or lLs consulLanL buL audlLed on a regular
basls by governmenL." (8oundLable llnal 8eporL, pages 28 and 29 respecLlvely)
33
WlLh regards Lo Lhe classlflcaLlon of oxlc condlLlons, Lhe 8oundLable gave quallfled supporL Lo Lhe
recommendaLlon LhaL, 1he currenL LnvlronmenLal CuallLy Cb[ecLlve of Lhe LnvlronmenLal MonlLorlng rogram Lo
malnLaln oxlc condlLlons should be enforced. LnforcemenL measures could lnclude a change ln llcence condlLlons,
remedlaLlon or llcence cancellaLlon. 1he currenL nSulA formula used Lo caLegorlze Lhe envlronmenLal sLaLus of a
slLe should be changed Lo ensure LhaL Cxlc (normal), Pypoxlc (olluLed), and Anoxlc (Crossly olluLed) condlLlons
are falrly represenLed." 1here was also a relaLed suggesLlon (wlLh parLlal supporL) Lo broaden envlronmenLal
lndlcaLors used: 1he regulaLory framework should requlre a move away from a narrow focus on sulphldes Lo
lnclude Lhe use of a more exLenslve llsL of envlronmenLal lndlcaLors for monlLorlng. 1hese may lnclude meLal
conLamlnaLlon, bacLerlal layers, dlssolved oxygen and blodlverslLy of sedlmenL llfe. lar-fleld effecLs and blologlcal
recovery should also be addressed." 8oLh recommendaLlons recelved some crlLlclsm for belng Loo prescrlpLlve.
(8oundLable llnal 8eporL, page 28)
103
uiffeient opeiatois baseu on theii tiack iecoiu anu paiticulai ciicumstances. In oui view, this
woulu be consistent with the unanimous iecommenuation of the Rounutable, to "Establish a
QNPBAACCP |sicj compliance mouel that cleaily establishes inuustiy anu goveinment
iesponsibilities foi monitoiing anu compliance".
S6


Cuiiently, wheie theie is non-compliance, a waining may be issueu to the opeiatoi. If the waining
uoes not achieve compliance, a Ninisteiial 0iuei iequiiing the non-compliance to be auuiesseu
may be issueu. A bioauei iange of enfoicement options is calleu foi. Inspectois shoulu have theii
own authoiity to issue oiueis. It shoulu be cleai that non-compliance with oiueis can leau to
piosecution oi, as uiscusseu below, to teimination of lease anu licence anu iefusal of applications
foi new leases anu licences.
Noieovei, it shoulu be cleai moie geneially that non-compliance with the iegulations can iesult in
piosecution. Becision-making authoiity ielative to the piessing of chaiges shoulu lay at the
buieauciatic level of the BFA, who woulu, like othei iegulatoiy officials, be auviseu by the Public
Piosecution Seivice. Wheie conviction occuis, the couit shoulu have the authoiity to impose
significant penalties wheie the couit ueteimines that they aie waiianteu on establisheu sentencing
piinciples foi iegulatoiy offences. The sentencing uiscietion of the couit shoulu also encompass
what is geneially iefeiieu to as cieative sentencing which can among othei things, incluue
sentences that iequiie a company to take iesponsibility foi its actions in the meuia, to unueigo
tiaining oi auopt othei measuies to pievent ieoccuiience, oi to make piesentations at inuustiy
gatheiings on the steps it is taking to ensuie futuie compliance.
In auuition, it shoulu be cleaily unueistoou that monitoiing anu inspection is conuucteu on the
unueistanuing that:
a stiong anu positive compliance iecoiu shoulu be a pie-conuition foi being able to acquiie
the iight to opeiate auuitional sites, eithei by applying foi new sites oi by acquiiing an
existing site fiom anothei opeiatoi. Bemonstiateu unwillingness oi inability to comply
with applicable iegulatoiy iequiiements shoulu make an opeiatoi ineligible foi a
significant numbei of yeais; anu
the ultimate penalty foi seiious non-compliance oi peisistent iefusal to auuiess non-
compliance is licence anu lease ievocation.
We think these iecommenuations aie consistent with the unanimously suppoiteu iecommenuation
of the Rounutable, that:

"Regulations anu license iequiiements must be enfoiceu. Penalties must be significant to
act as a ueteiient. 0ngoing lack of compliance shoulu be associateu with lease
teimination."
S7



36
See llnal 8oundLable 8eporL aL page 29.
37
See 8oundLable llnal 8eporL aL page 30.
104
Anothei unanimous iecommenuation fiom the Rounutable on monitoiing anu enfoicement was
that "Community membeis shoulu be encouiageu to paiticipate in monitoiing as obseiveis in fielu
sampling in oiuei to inciease tianspaiency anu builu tiust".
S8
We enuoise this iecommenuation.
Finally, we iecommenu that membeis of the public be pioviueu with an oppoitunity set out in
legislation to apply to the Ninistei to have a lease ievokeu uue to cleai eviuence of biophysical
unsuitability of the site, oi to have a licence ievokeu uue to a pattein of substantial non-compliance
with teims anu conuitions of the licence.























38
See 8oundLable llnal 8eporL aL page 29.
103
WW .0/%5*#5 "11(/1

The iegulatoiy system uesigneu unuei the fiamewoik we have iecommenueu neeus to caiefully
consiuei emeiging issues. The key emeiging issues that have been biought to oui attention aie the
following:
The use of genetically mouifieu oiganisms (uN0) in Nova Scotia seems to us to be inconsistent with
the piecautionaiy appioach, anu woulu likely unueimine effoits to position the Nova Scotia
inuustiy as a high value, low enviionmental anu social impact anu iisk inuustiy. While we uiu not
heai much about this issue, oui iecommenuation woulu be to not peimit uN0s in any stage of the
giowing cycle in Nova Scotia.
0ffshoie aquacultuie appeais to be on the veige of becoming technically viable. In uesigning its
iegulatoiy system anu in its uiscussions with feueial iegulatois, we iecommenu that the
goveinment of Nova Scotia consiuei caiefully how this emeiging sectoi shoulu be iegulateu. An
impoitant staiting point will be to ueteimine whethei such opeiations woulu be subject to feueial
iegulation only, oi whethei the piovince will play a iole in the iegulation of offshoie facilities.
As the inuustiy uiveisifies, it is ieasonable to expect that moie anu moie uiffeient species of fish
will be pioposeu foi faiming in Nova Scotia. This will put incieasing piessuie on iegulatois to
consiuei the iisk of invasive aquatic species. The liteiatuie is cleai that pievention of intiouuction
is the only effective methou foi contiolling invasive aquatic species. We theiefoie iecommenu that
a piecautionaiy appioach be taken to invasive species. In oui view, the appiopiiate appioach
woulu be to not peimit the intiouuction of non-native species, except in iaie ciicumstances wheie
theie is cleai scientific consensus that the species in question will not become invasive in Nova
Scotia's wateis.
We have been tolu that Integiateu Nulti Tiophic Aquacultuie (INTA) holus much piomise with
iespect to the management anu minimization of enviionmental impacts of fin-fish aquacultuie in
coastal wateis. In paiticulai, theie appeai to be oppoitunities to ieuuce benthic impacts fiom fin-
fish opeiations thiough the use of INTA. While moie expeiience is neeueu to fully unueistanu its
potential, we uo feel that the iegulatoiy system shoulu be uesigneu in anticipation that INTA will be
incieasingly utilizeu in the futuie to ieuuce the enviionmental impact of aquacultuie.







106
WY @*$/ :-&1(%/ ,#' :-/,#C(=

The issue of the clean-up of aquacultuie sites when piouuction comes to a close oi a business is
wounu up was iaiseu on a numbei of occasions uuiing oui piocess. People in local communities
iefeienceu situations wheie geai has been abanuoneu in the watei anu uebiis left floating in the
watei anu on shoielines. They also iefeienceu situations in othei juiisuictions, wheie the
appaiatus foi conuucting aquacultuie has been simply left in the watei when opeiations at a site
have come to an enu. In iesponse, people fiom the inuustiy often commenteu that the inuustiy
conuucts itself veiy uiffeiently now in these iespects than it uiu foimeily. That saiu, they also
acknowleugeu that not all opeiatois aie iesponsible in cleaning up theii sites. They also geneially
acknowleugeu the noimative point, that opeiatois shoulu be iesponsible foi leaving theii sites in a
clean conuition when theii opeiations come to a close.
In auuition, it woulu be typical foi a iegulatoiy fiamewoik that authoiizes physical infiastiuctuie
to be built in a public space foi the puipose of economic activity that uses public iesouices to
iequiie those who aie authoiizeu to put the infiastiuctuie in place to iemove that infiastiuctuie
anu all uebiis when the opeiation comes to an enu.
At the Rounutable, the following iecommenuation ieceiveu unanimous suppoit: "The iegulatoiy
fiamewoik shoulu iequiie opeiatoi iesponsibility foi uecommissioning anu iemeuiation stanuaius
foi both on anu off-lease clean-up, incluuing shoieline iemeuiation."
S9
We agiee with this
iecommenuation.

We also think that the iegulatoiy fiamewoik shoulu authoiize the Ninistei of Fisheiies anu
Aquacultuie to unueitake necessaiy clean up wheie an opeiatoi fails to uo so at all oi to the
stanuaiu iequiieu by the Ninistei. As unuei enviionmental anu natuial iesouices legislation in
othei sectois, the cost incuiieu by the Ninistei in uoing clean-up woik that is not completeu by the
opeiatoi shoulu be a uebt oweu by the opeiatoi to the Ninistei. To ensuie the Ninistei can iecovei
on this uebt, licenseu opeiatois shoulu be iequiieu to post a bonu with the BFA when they aie
licenseu in an amount that is piopoitionate to the cost likely to be incuiieu in cleaning up theii site
shoulu theii opeiations come to an enu.
6u
This woulu be iepayable wheie the clean-up is
completeu by the opeiatoi to the satisfaction of the Ninistei.


39
See 8oundLable llnal 8eporL aL page 27. Also, Lhere was parLlal supporL for Lhe recommendaLlon LhaL, 8oLLom
sampllng aL Lhe Llme of decommlsslonlng should be carrled ouL, Lo be pald by Lhe operaLor", Lhough some
members of Lhe 8oundLable belleve LhaL speclflc requlremenL already exlsLs.
60
1hls recommendaLlon ls conslsLenL wlLh Lhe followlng one whlch recelved quallfled supporL aL Lhe 8oundLable:
1he framework should requlre Lhe operaLor Lo posL a bond aL Lhe Llme Lhe llcence ls lssued Lo cover Lhe cosL of
remedlaLlon". 1hose who gave quallfled supporL asked abouL Lhe success of bondlng arrangemenLs and
conslderaLlon of oLher Lypes of flnanclal lnsLrumenLs. lf oLher klnds of flnanclal arrangemenLs can be shown Lo
work as well or beLLer Lhan bondlng arrangemenLs, Lhey should cerLalnly be consldered as alLernaLlves Lo a
bondlng approach. Cn Lhe effecLlveness of bondlng, Lhls may depend on Lhe wllllngness of Lhe regulaLory
auLhorlLy Lo requlre adequaLe bonds and Lo lnslsL upon meanlngful remedlaLlon, as well as on oLher facLors.
(8oundLable llnal 8eporL, page 27)
107
In auuition, failuie to clean up a site to the stanuaiu acceptable to the Ninistei shoulu piecluue the
opeiatoi in question fiom being given any new licences oi having existing licences ieneweu.






















108
WZ 4/-,$*&#13*= &2 $3/ 4/5(-,$&%6 +%,0/7&%8 $& "#'(1$%6 :&'/1 &2
;%,)$*)/

A coue of piactice is typically a set of stanuaius that an inuustiy uevelops foi itself anu that
businesses belonging to that inuustiy auopt voluntaiily oi as a conuition of theii membeiship in an
inuustiy association. 0ften, the existence of a coue of piactice leaus iegulatois to auopt moie
limiteu oi moie geneial iegulations than might otheiwise be the case. In this way, a coue of
piactice often staits wheie a set of iegulations leave off. Sometimes, the existence of a coue of
piactice takes the place of state iegulation altogethei.
Coues of piactice can be integiateu into a iegulatoiy fiamewoik in vaiious ways. Sometimes
compliance with some oi all of a coue of piactice is a iegulatoiy iequiiement. Sometimes
piovisions of a coue of piactice aie wiitten into iegulations anu sometimes iegulations incoipoiate
piovisions of a coue of piactice by iefeience. Anothei scenaiio is wheie iegulations aie wiitten to
give iegulateu businesses a choice between complying with a piovision of the iegulations oi with a
piovision of a coue of piactice that ueals with the same issue.
We have thought caiefully about whethei the iegulatoiy fiamewoik foi Nova Scotia's aquacultuie
inuustiy shoulu pioviue foi the uevelopment anu implementation of an inuustiy coue of piactice.
This is the appioach taken in Scotlanu, which is geneially iegaiueu as having a veiy piogiessive
iegulatoiy fiamewoik. In that juiisuiction, the law iequiies the inuustiy's association to uevelop a
coue of piactice that meets with the appioval of the iegulatoiy authoiity. vaiious piovisions in the
coue of piactice aie maue manuatoiy by the iegulatoiy fiamewoik. 0thei piovisions in the coue
have to be implementeu unless the business achieves the same objective by anothei means. A thiiu
categoiy of piovisions is tieateu as puiely voluntaiy.
The Aquacultuie Association of Nova Scotia is in the piocess of ueveloping a coue of piactice that its
membeis woulu be iequiieu to follow. We iegaiu this as a veiy positive step on the pait of the
Association. We have consiueieu whethei this pioject shoulu continue outsiue anu in paiallel to
the iegulatoiy fiamewoik oi whethei it shoulu insteau be caiiieu on within the iegulatoiy
fiamewoik with a view to some oi all of it being auopteu as pait of the iegulatoiy fiamewoik.
Regulatoiy fiamewoiks which incluue an inuustiy-uevelopeu coue of piactice oi that woik in
conjunction with such a coue of piactice aie thought to have vaiious stiengths. Foi example,
stanuaius set in coues of piactice may be supeiioi to those set by iegulatois uue to the supeiioi
knowleuge that people in the inuustiy may have of the inuustiy anu the options foi achieving
iegulatoiy objectives. In auuition, businesses may simply be moie inclineu to comply with oi less
inclineu to ignoie stanuaius that aie uevelopeu by peeis insteau of by politicians oi buieauciats. In
auuition, by iequiiing oi utilizing a coue of piactice, a iegulatoiy fiamewoik essentially makes the
inuustiy iesponsible foi policing itself anu its inuiviuual membeis.
These stiengths of a coue of piactice as a iegulatoiy tool uepenu upon the ieality that coues of
piactice aie instiuments of self-iegulation. This is what leaus otheis to lack tiust anu confiuence in
any iegulatoiy fiamewoik that significantly ielies on a coue of piactice. Regulatois can tiy to
109
auuiess these conceins by assuming contiol oi oveisight of the piocess thiough which the coue of
piactice is uevelopeu oi by iequiiing the inuustiy to incluue othei stakeholueis in the piocess.
These actions can howevei ieuuce the effectiveness of a coue of piactice in gaining inuustiy's
coopeiation with the iegulatoiy piocess.
In Nova Scotia's aquacultuie inuustiy, low tiust anu confiuence in the cuiient iegulatoiy
fiamewoik is one of that fiamewoik's coie weaknesses. We uo not think this pioblem can be
auuiesseu by the auoption of a new fiamewoik unuei which iegulation of the inuustiy woulu be
thiough a coue of piactice uevelopeu by the inuustiy.
61
In pait, this is because tiust anu confiuence
in the inuustiy is also not high at this time but moie funuamentally, it is because of the wiuespieau
view that the inuustiy is alieauy too heavily self-iegulating. In auuition, we aie conceineu that the
Nova Scotia inuustiy may not cuiiently have the capacity it woulu neeu to play the kinu of iole that
the Scottish inuustiy playeu in ueveloping the coue of piactice that is the basis of Scotlanu's
iegulatoiy fiamewoik.
We wish howevei to ieiteiate that we aie veiy suppoitive of the Association's woik on a coue of
piactice. This is the kinu of initiative neeueu fiom the inuustiy if it is gain anu maintain the tiust
anu confiuence of the communities in which the inuustiy is locateu anu of the people of Nova Scotia
moie bioauly. If uone effectively, it can help to ensuie tiust anu confiuence in the inuustiy uepenus
on moie than compliance with iegulations. An inuustiy-uevelopeu coue of piactice can also play an
impoitant iole in ensuiing that a new iegulatoiy fiamewoik is effectively implementeu thioughout
the inuustiy. In can be paiticulaily helpful in making iegulatoiy compliance feasible anu cost-
effective foi smallei businesses. Foi these ieasons, we think the BFA shoulu be suppoitive of the
effoits of the Association to uevelop a coue of piactice.
The final comment we make is to encouiage the Association to continue to woik on its coue of
piactice thiough an open piocess that welcomes paiticipation anu contiibution fiom communities,
municipalities, lobstei fisheis, salmon angleis, anu enviionmentalists. A goou fiist step in this
uiiection was taken by the Association when it inviteu membeis of the Rounutable to attenu a
uiscussion on coues of piactice helu in conjunction with the Associations iecent AuN anu annual
confeience. Such an appioach will not only help to ensuie that a stiong coue of piactice is
uevelopeu but also that it is uevelopeu thiough a piocess the builus anu stiengthens ielationships
between people in the inuustiy anu people who aie inteiesteu in the inuustiy anu its uevelopment.







61
nelLher dld Lhe 8oundLable, whlch dld noL supporL a recommendaLlon LhaL, 1he regulaLory framework should
lncorporaLe lndusLry Codes of racLlce." (8oundLable llnal 8eporL, page 26)
110
W[ 4/-,$*&#13*= &2 $3/ 4/5(-,$&%6 +%,0/7&%8 $& J3*%' ;,%$6
:/%$*2*),$*&#

Theie have been impoitant uevelopments with iespect to thiiu paity ceitification in the
aquacultuie sectoi ovei the past uecaue. As is the case in othei inuustiy sectois, ceitification has
become an impoitant goveinance tool to impiove the enviionmental anu social peifoimance of the
inuustiy. We aie encouiageu by iecent uevelopments in this iegaiu, paiticulaily with iespect to
fin-fish aquacultuie. Consistent with the goal of maximizing value while minimizing iisk anu
negative social anu enviionmental impacts, we feel stiongly that ceitification with thiiu paity
ceitification bouies that offei inuustiy leauing stanuaius anu piactices shoulu be encouiageu. At
the same time, we uo not feel that it woulu be appiopiiate to foimally link the iegulatoiy piocess in
a significant way to thiiu paity ceitification. Rathei, the iegulatoiy piocess shoulu stanu on its
own, while suppoiting anu iewaiuing wheie appiopiiate effoits by opeiatois to uemonstiate
leaueiship thiough thiiu paity ceitification that involves inuustiy leauing stanuaius anu piactices.
The basic iuea is that ceitification is not iequiieu, but inuustiy anu iegulatois shoulu be
encouiageu to follow ceitification uevelopments anu auopt best piactices. Piovince shoulu iuentify
appiopiiate ceitification as a pie-conuition foi financial assistance. Fuitheimoie, ceitification is
pait of the tiack iecoiu iegulatois shoulu take into account in iegulatoiy uecisions, such as length
of licensing peiiou.
0f the ceitification stanuaius we hau the oppoitunity to ieview, the Aquacultuie Stewaiuship
Council (ASC) stanuaiu appeais to be cuiiently the leauing stanuaiu.
62
0theis may have supeiioi
stanuaius in paiticulai aieas, but oveiall, the ASC stanuaiu appeais to be, anu to be iecognizeu as
the leauing stanuaiu in the inuustiy. We iecognize, of couise, that this may change ovei time, as
othei stanuaius evolve, anu as inuustiy piactice anu technology catches up anu peihaps oveitakes
this stanuaiu.
Foi the moment, howevei, the ASC stanuaiu woulu appeai to us to be a goou souice of stanuaius
foi the selection of iegulatoiy stanuaius foi Nova Scotia. Among the issues auuiesseu in the ASC
stanuaiu that Nova Scotia shoulu look to aie the following:
o Stanuaius on benthic biouiveisity anu benthic effects
o Stanuaius on watei quality, incluuing biological oxygen uemanu (B0B)
o Stanuaius on nutiients, with a focus on "fines" fiom feeu
o Stanuaius on inteiaction of opeiations with wilulife, such as biius anu mammals,
incluuing the use of acoustic haiassment uevices, moitalities fiom entanglement, a
focus on non-lethal ueteiience, anu tianspaiency on effoits anu iesults
o Tianspaiency about unexplaineu loss of fish

62
1he 8oundLable gave parLlal supporL for Lhe recommendaLlon LhaL, Any flnflsh operaLlon ln nova ScoLla should
be requlred Lo meeL Lhe AquaculLure SLewardshlp cerLlflcaLlon sLandards and condlLlons", Lhough dlscusslons on
Lhls polnL laLer suggesLed LhaL more approprlaLe regulaLory Lools are avallable. neverLheless, Lhere was
recognlLlon LhaL such cerLlflcaLlon programs wlll llkely conLrlbuLe Lo Lhe developmenL of besL managemenL
pracLlces ln Lhe lndusLry. (8oundLable llnal 8eporL, page 28)
111
o Requiiements foi net stiength testing to pievent escapes
o Fish meal anu fish oil iatios in feeu
o veteiinaiy seivice stanuaius
o Tianspaiency on any tieatment of fish to the public anu to buyeis of the piouuct
o Requiiement foi only single yeai class of fin-fish on any site




































112
W\ K#5&*#5 4/5(-,$&%6 D'H*1&%6 :&00*$$// &# DE(,)(-$(%/
4/5(-,$*&#

0ui piocess benefiteu gieatly fiom oui Rounutable anu oui Auvisoiy Committee. Both committees
offeieu invaluable insights into the iange of peispectives that have to be consiueieu in ueveloping
faii piocess anu ieaching faii conclusions on issues ielateu to the iegulation of the aquacultuie
inuustiy. We also feel that both committees seiveu as impoitant foiums foi mutual leaining among
some of the key paities involveu in anu affecteu by the inuustiy.
The BFA's effectiveness as a iegulatoi woulu benefit if a mechanism was cieateu to establish an
ongoing multi-constituency foium foi the uiscussion of the iegulation of aquacultuie. We theiefoie
iecommenu that an ongoing Regulatoiy Auvisoiy Committee (RAC) be stiuck to continue to meet at
least once a yeai to auvise the BFA on the implementation of aquacultuie iegulations, on possible
changes to the iegulatoiy fiamewoik in the futuie, on significant policy issues ielating to iegulation
as they aiise anu on the oveiall effectiveness of the iegulatoiy fiamewoik. The RAC coulu also be a
foium foi the uiscussion of emeiging issues in the iegulation of aquacultuie oi in the aquacultuie
inuustiy that may call foi a iegulatoiy iesponse. The RAC shoulu be maue up of appioximately 1u
membeis anu incluue iepiesentation fiom Fiist Nations anu the following inteiests:

Nunicipalities
Aquacultuie inuustiy
Fishing inuustiy
Coastal communities
Enviionmental anu conseivation oiganizations
Economic uevelopment anu touiism inteiests.

The RAC shoulu be inuepenuently facilitateu. It coulu play an impoitant iole in ensuiing
iegulations keep up with science anu technology, anu moie geneially, that they continue to be
upuateu in puisuit of the iegulatoiy goals set out above. In oui view, it woulu help to ensuie the
continuing impiovement of the iegulatoiy fiamewoik as it is being applieu. We note in this iegaiu
that impiovement of the new iegulatoiy fiamewoik on an ongoing basis shoulu not wait until it is
time foi the five-yeai ieview, which we subsequently iecommenu. We also note that at the
Rounutable theie was qualifieu suppoit foi a five-yeai ieview but unanimous suppoit foi the
iecommenuation that "The iegulatoiy fiamewoik shoulu incluue a piocess to stiive to ensuie
continuous impiovement, iathei than waiting foi a five-yeai ieview".
Anothei impoitant benefit of the cieation of a RAC is that it coulu ensuie that the uialogue on the
iegulation of aquacultuie that has taken place in this piocess continues anu uevelops aftei oui
piocess comes to an enu. By itself, this woulu be an impoitant ieason foi having an RAC. It coulu
help to ensuie that issues that have the potential to be polaiizing anu uivisive have a foium in
113
which they can be pioactively anu constiuctively uiscusseu anu auuiesseu befoie they become
polaiizing anu uivisive.























114
W] @)*/#)/ D'H*1&%6 +%,0/7&%8eO/)3,#*10e;%&)/11

The Panel has been foitunate to have the benefit of access to fiist-iate scientific anu local
knowleuge auvice in oui woik thiough the Knowleuge Rostei we establisheu as pait of oui piocess.
Thiough oui Knowleuge Rostei, we have hau access to acauemic anu community expeits in a iange
of fielus ielevant to the aquacultuie inuustiy anu the iegulation of aquacultuie.
We iecommenu that the BFA establish an ongoing mechanism foi consulting with expeits on the
science of aquacultuie anu its iegulation.
6S
This coulu be a stanuing auvisoiy committee oi a
bioauei netwoik such as oui Knowleuge Rostei oi some combination of the two appioaches.
Alteinatively, the BFA anu those who aie piepaieu to paiticipate in such a mechanism may iuentify
a thiiu anu supeiioi mechanism. Bowevei constiucteu, the iuea woulu be that a stanuing
mechanism woulu link the BFA with a community of expeits in the science of aquacultuie to
facilitate the BFA's access to the combineu expeitise of that community. At the same time, expeits
who agieeu to paiticipate woulu have a channel thiough which to contiibute to the effectiveness of
iegulation anu to uecision-making in the aquacultuie sectoi moie bioauly. 0ui expeiience suggests
many expeits acioss Atlantic Canaua aie fully piepaieu to make this kinu of contiibution anu woulu
welcome an avenue to uo so on a continuing basis.
The issues oi questions that woulu be consiueieu woulu incluue those iuentifieu by the BFA on an
ongoing basis. Theie woulu be an emphasis on issues anu questions of ielatively uiiect ielevance to
the iegulation of aquacultuie. Paiticipants in the piocess woulu also have an oppoitunity to
iuentify issues oi questions that waiiant uiscussion.
64
The impoitant limitation is that the issues
anu questions fiom eithei uiiection shoulu be of a geneial natuie. This woulu not be a mechanism
thiough which the BFA woulu seek auvice on specific iegulatoiy uecisions, such as whethei a
paiticulai application shoulu be appioveu oi the teims anu conuitions that shoulu be attacheu to an
appioval. Insteau, the focus woulu be on science issues anu questions that aie ielevant to geneial
policy issues in iegulation oi to the geneial functioning of the iegulatoiy fiamewoik. Foi example,
the question of how to stiuctuie an analytical fiamewoik oi a uecision mouel foi iuentifying uieen,
Yellow anu Reu aieas foi fin-fish aquacultuie might be a topic to be uiscusseu in this foium. The
chaiacteiization of a paiticulai pait of the coast as uieen, Yellow oi Reu woulu not be.
0ne of the topics that shoulu uefinitely be incluueu in the manuate of the mechanism woulu be to
iuentify gaps in knowleuge in how aquacultuie opeiations inteiact with the natuial enviionment,
paiticulaily in a Nova Scotia context. 0ptions foi auuiessing those gaps woulu also be an
impoitant pait of the mechanism's iationale. In this way, the mechanism we have in minu coulu be
veiy helpful to the BFA capacity to caiiy out the expanueu anu moie pioactive appioach to
ieseaich that we have pioposeu as a founuational element to the new iegulatoiy fiamewoik.

63
1he 8oundLable gave quallfled supporL Lo Lhe recommendaLlon LhaL, 1he developmenL of regulaLlons,
lndlcaLors, sLandards and Lhresholds should be sclence-based and should be lnLegraLed wlLh local ecologlcal
knowledge." (8oundLable llnal 8eporL, page 18)
64
1hls would Lle ln Lo Lhe 8oundLable's quallfled recommendaLlon LhaL, Sclence-based evldence should use
convenLlonal naLural sclence Lo lnvesLlgaLe and valldaLe local knowledge wlLh Lhe full parLlclpaLlon of Lhe local
knowledge holders." (8oundLable llnal 8eporL, page 18)
113
We iecommenu that expeitise in the following aieas be a paiticulai focus in seeking out membeis
of the acauemia anu holueis of tiauitional, local anu community knowleuge to paiticipate in this
mechanism:
Fish health
Benthic impacts of aquacultuie
Byuio-geological conuitions
Wilu fish populations
Invasive species
Sea lice
Bisease management
Local ecosystems
Socio-economic issues peitaining to aquacultuie at multiple scales (i.e. local,
iegional, piovincial, national, anu inteinational)
Like the RAC, a moie foimal mechanism foi continuing contiibution to the iegulatoiy fiamewoik
fiom membeis of the scientific anu tiauitional knowleuge communities woulu help to ensuie the
continuing impiovement of the iegulatoiy fiamewoik as it is being implementeu. Theiefoie, as
with the RAC, the science anu tiauitional knowleuge mechanism we iecommenu woulu be
iesponsive to the iecommenuation that founu qualifieu suppoit at the Rounutable that, "The
iegulatoiy fiamewoik shoulu incluue a piocess to stiive to ensuie continuous impiovement, iathei
than waiting foi a five-yeai ieview".















116
W^ ;&$/#$*,- 4&-/ 2&% DDS@ *# @(==&%$*#5 :&0=-*,#)/

In light of what we have pioposeu, the iegulatoiy fiamewoik will be moie uemanuing foi cuiient
businesses anu those that want to entei the aquacultuie business. The cost of compliance with the
iegulations anu of getting appioval fiom the iegulatoi coulu be moie expensive. The technical
capacity anu iesouices of business will be moie impoitant to theii ability to woik successfully anu
piofitably unuei the new iegulatoiy fiamewoik.
This will pose paiticulai challenges foi small businesses anu foi stait-ups. Nany of these woik in
shell-fish aquacultuie, a sectoi of the inuustiy in which giowth may attiact gieatei suppoit. But the
new fiamewoik will pose challenges foi those in fin-fish aquacultuie as well.
This is ielevant not only fiom a business piofitability anu an inuustiy uiveisity peispective but also
fiom a iegulatoiy effectiveness peispective. If iegulateu businesses aie not able to meet iegulatoiy
iequiiements, the iegulatoiy fiamewoik will not be as fully implementeu as it otheiwise woulu be.
Nany iegulatois uevelop anu uelivei piogiams to help iegulateu companies, especially small anu
meuium sizeu companies, know, unueistanu anu comply with theii iegulatoiy obligations. We
think the BFA shoulu consiuei such options.
Anothei option woulu be foi the Aquacultuie Association of Nova Scotia to make the uevelopment
anu ueliveiy of such piogiams pait of the seivice it pioviues to its membeis. The auvantage of this
appioach is that it woulu avoiu the BFA a peiceiveu conflict between the BFA's iole as the iegulatoi
anu the iole it might play in builuing the capacity of the sectoi to meet its iegulatoiy objectives.
The foimation of the Regulatoiy Auvisoiy Committee we iecommenu cieates the oppoitunity foi
the Association to uevelop oi expanu of such piogiams with input fiom the laigei iange of
constituencies inteiesteu in the iegulation of aquacultuie.










117
W` N&%8*#5 :,=*$,- GDE(,)(-$(%/ F&,#1 Q&,%'I

Nany in the inuustiy iaiseu the issue of the highei levels of assistance with woiking capital that the
inuustiy ieceives in the iest of Atlantic Canaua as compaieu to Nova Scotia. Although some may
question if it is a iegulatoiy issue, it shoulu be noteu that the 8$.9(%$(. *"/ :&*.)*+ 67) establishes
the Fisheiies anu Aquacultuie Loan Boaiu anu manuates it to pioviue loans to aquacultuie as well
as fisheiies. Noie bioauly, it is well iecognizeu that goveinments can encouiage iegulateu
inuustiies to act in accoiuance with iegulatoiy objectives by pioviuing them with the financial
assistance that makes compliance with iegulations moie feasible anu woithwhile.
The issue of the level anu the natuie of the financial suppoit that the Piovince of Nova Scotia
pioviues to the inuustiy is theiefoie a pait of the iegulatoiy fiamewoik bioauly conceiveu. We
have not heaiu enough on the mattei to make uetaileu oi extensive iecommenuations. We can
howevei offei the following obseivations:
Theie is a peiception in the inuustiy that the inuustiy suffeis because the piioiity of the
Fisheiies anu Aquacultuie Loan Boaiu is the fisheiies sectoi anu because the Boaiu is not
set up to unueistanu oi give equitable consiueiation to the issues anu oppoitunities facing
aquacultuie;
To the extent that public money is to be maue available to suppoit the uevelopment of the
aquacultuie inuustiy, it shoulu be maue available on faii anu equitable teims to the
inuustiy as a whole; anu
Financing shoulu be useu to not only suppoit the giowth of the inuustiy but to suppoit
giowth that moves the inuustiy in the uiiection of low impacthigh value we have aigueu
shoulu be Nova scotia's oveiiiuing objective in the aquacultuie sectoi. This coulu mean:
o No eligibility foi funuing unless theie is a stiong tiack iecoiu of iegulatoiy
compliance;
o No eligibility foi funuing foi oiganizations that coulu be functioning unuei one of
the stiongei anu well-iecognizeu ceitification stanuaius, such as the ASC stanuaiu,
unless they aie ceitifieu oi in the piocess of obtaining ceitification; anu
o An auvantage foi companies applying foi financing that will us the assistance to
impiove theii enviionmental peifoimance, social licence oi geneial capacity to
piouuce highei values piouucts while ieuucing theii impact on the enviionment.
Finally, a caution. The meetings we helu in communities aiounu the coastline of Nova Scotia maue
it abunuantly cleai to us that wheie the goveinment's financial contiibution to a specific company
ieaches a ceitain magnituue oi scale, the willingness anu ability of goveinment iegulatois to
iigoiously iegulate that company will be wiuely questioneu. This may be especially so wheie the
funuing comes fiom the BFA iathei than fiom anothei goveinment uepaitment (such as Economic
anu Ruial Bevelopment anu Touiism) oi an aims-length economic uevelopment agency.


118
Ya O,#',$&%6 "#'/=/#'/#$ +*H/C6/,% 4/H*/7 G7*$3 ,# D'H*1&%6
:&00*$$//I

At the Rounutable, theie was qualifieu appioval foi the iecommenuation that "The new iegulatoiy
fiamewoik shoulu incluue a five-yeai ieview by a committee incluuing goveinment, Fiist Nations
anu stakeholueis".
6S
The qualification ielateu to a concein about the specification that the ieview
woulu be caiiieu out by a ieview committee.

Five-yeai ieviews have been incluueu in a numbei of Statutes in iecent yeais, incluuing the
!"#$%&"'(") 67) anu the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67). In both cases, the
ieview piocess iesulteu in a iange of amenuments of the statute being ievieweu which ieflecteu
lessons leaineu in the fiist five yeais of the statute's opeiations as well changes in the conuitions
that affecteu the effectiveness of the statute. In both cases, the ieview piocess was an open one that
pioviueu all Nova Scotians with oppoitunities to contiibute.

In shoit,, in legislation that has similaiity with the :&*.)*+ ;(.&1%7(. B*"*>('(") 67), a manuatoiy
five-yeai ieview has pioven to be useful in Nova Scotia in making legislation bettei. In oui view,
the same can be expecteu fiom a ieview of a bioauei iegulatoiy fiamewoik which woulu incluue
the amenuments which woulu be maue to the Act anu iegulations to implement the fiamewoik but
which woulu also encompass the iole of the BFA in making the fiamewoik opeiational thiough
licensing anu leasing, monitoiing anu enfoicement, anu woiking with the BF0 anu othei feueial
iegulatois anu scientific anu iegulatoiy auvisoiy gioups.

Anothei impoitant iationale foi a manuatoiy anu inuepenuent five-yeai ieview is that it puts the
BFA on notice that it will be accountable at the enu of five-yeais foi showing that the iegulatoiy
fiamewoik has been uiligently anu effectively implementeu. This will help to ensuie that the
commitment to piouucing a woilu class iegulatoiy fiamewoik that was expiesseu when we weie
appointeu to uevelop this iegulatoiy fiamewoik will be maintaineu thiough the piocess of
tianslating oui iecommenuations into effective action.

At the same time, a manuatoiy inuepenuent ieview aftei five yeais will ensuie that the ongoing
piocess of impioving the iegulation of aquacultuie in Nova Scotia has the oppoitunity to impiove
on the fiamewoik we have iecommenueu wheie expeiience shows that oui iecommenuations
weie inauequate oi mistaken.
66


0n the stiuctuie foi the ieview, theie is a iange of options available. We have noteu the piefeience
foi some on the Rounutable foi the ieview committee to incluue goveinment, Fiist Nations anu

63
See 8oundLable llnal 8eporL aL page 32.
66
1he 8oundLable gave unanlmous approval Lo Lhe asserLlon LhaL, 1he regulaLory framework should lnclude a
process Lo sLrlve Lo ensure conLlnuous lmprovemenL, raLher Lhan walLlng for a flve-year revlew." (8oundLable llnal
8eporL, page 32)
119
stakeholueis anu the ieseivation of othei Rounutable membeis about being piesciiptive that the
ieview woulu be by a ieview committee. We woulu also note that ieview committees can be
stiuctuieu in a numbei of uiffeient ways. 0ne way is that suggesteu by the majoiity of Rounutable
membeis, which is a ieview committee that is maue up of iepiesentatives of the key constituencies.
This is the appioach auopteu unuei the !"#$%&"'(")*+ -&*+. *"/ 01.)*$"*2+( 3%&.4(%$)5 67).
Anothei is a committee consisting of peisons who aie appointeu because of theii piofessional
expeiience anu expeitise anu theii inuepenuence of both goveinment anu stakeholueis. This, moie
oi less, has been the appioach followeu unuei the !"#$%&"'(") 67) anu some othei statutes.

In oui view, what matteis is that the ieview be manuateu so that it be cleai fiom the beginning that
it will happen. It matteis also that it be cleai that the ieview will be conuucteu inuepenuently anu
not by the BFA oi anothei pait of the piovincial goveinment. It matteis, in othei woius, that it be
an exteinal anu not an inteinal self-ieview. What also matteis is that the ieview be paiticipatoiy,
meaning that all who aie inteiesteu in contiibuting theii peispectives have full oppoitunity to uo so
whethei oi not they aie uiiectly iepiesenteu by those manuateu to caiiy out the ieview.

In auuition, we suggest it woulu be impoitant to stiuctuie the ieview in such a way as to be suie it
was suiteu to ueal with the uetails of iegulatoiy uesign anu auministiation as well as with bioau
policy issues. This may lean towaius the expeit ieview mouel explaineu above moie than it uoes to
the stakeholuei ieview mouel. An auvisoiy committee, such as the one that was establisheu to help
us in the uevelopment of this fiamewoik, coulu be foimeu to ensuie the expeits appointeu to uo the
ieview woikeu with the benefit of auvice fiom goveinment, Fiist Nations anu the full iange of
stakeholueis inteiesteu in aquacultuie.














120
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We have iuentifieu a numbei of implementation issues that we feel aie impoitant foi us to
comment on. Fiist, we have consiueieu caiefully whethei to iecommenu a new Act, oi whethei the
changes we aie pioposing can be implementeu thiough amenuments to the existing legislation. We
have concluueu that the iegulatoiy system we have pioposeu can be implementeu thiough changes
to 8$.9(%$(. *"/ :&*.)*+ ;(.&1%7(. 67), in combination with the uevelopment of new iegulations anu
policies.
It will be impoitant to be cleai about the tiansition. At the stait of oui piocess, the goveinment of
Nova Scotia committeu to not piocessing any applications foi new maiine-baseu fin-fish opeiations
until the conclusion of oui piocess, with the cleai intent that any applications foi new opeiations
woulu be piocesseu unuei the new iegulatoiy system. This commitment has been an impoitant
step in establishing tiust in communities conceineu about maiine-baseu fin-fish opeiations. It will
be impoitant foi this commitment to continue, anu foi any new applications to be subject to the
new iegulatoiy system.
Existing facilities shoulu not be gianufatheieu. Nova Scotia's existing aquacultuie inuustiy, while
not at the scale of some juiisuictions, is consiueiable in size anu uiveisity. As a iesult, it is ciitical
foi the effectiveness of the new iegulatoiy system that all existing facilities be subject to all iules
that can ieasonably be applieu to existing opeiations, incluuing all statutoiy conuitions,
tianspaiency piovisions, iules foi changes to anu ienewals of licences anu leases, anu to
monitoiing anu iepoiting obligations. We aie not in a position to suggest a specific time fiame, but
we uo iecommenu that the iegulatoiy system set a specific timefiame aftei which all existing
opeiations aie subject to the new iegulatoiy system. The timefiame shoulu be set to allow
opeiatois ieasonable time to aujust to the new iules, but no longei.
Finally, theie aie impoitant Fiist Nations anu aboiiginal consultations that neeu to take place. Fiist
Nations anu othei aboiiginal communities anu inuiviuuals in Nova Scotia have an impoitant iole to
play in the uesign anu implementation of an effective iegulatoiy system foi the aquacultuie
inuustiy. Fiist Nations iepiesentatives paiticipateu on oui Auvisoiy Committee, on oui
Rounutable, contiibuteu to oui Knowleuge Rostei, anu attenueu a numbei of oui Community
Neetings. Thiough these involvements in oui piocess, we have come to unueistanu that aboiiginal
communities anu inuiviuuals aie existing anu potential owneis anu opeiatois of aquacultuie
facilities, but otheis have conceins about the social anu enviionmental impacts anu iisks associateu
with ceitain aquacultuie opeiations. We have maue eveiy effoit to ieflect on the views expiesseu
to us in oui iecommenuations. The inteiests anu conceins of aboiiginal peoples in Nova Scotia
shoulu, howevei, be exploieu in uiiect uiscussions between the piovince of Nova Scotia anu
aboiiginal communities befoie the new iegulatoiy system is finalizeu.