Summary: socio-economic analysis of the Species at Risk Act (SARA) listing decision for Birkenhead and DU 21 Chinook salmon

Report date: July 2024

• Region: Pacific
• Populations: Birkenhead and Designatable Unit (DU) 21 Chinook
• Scientific name: Oncorhynchus tshawytscha
• COSEWIC Status: Special Concern
• SARA Status: Under consideration

Context

The Birkenhead (DU 3, Lower Fraser, Stream, Spring population) population of Chinook salmon was first assessed in 2018 as Special Concern by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC), which initiated the current SARA process. DU 21 (East Coast Vancouver Island, Ocean, Fall population) Chinook salmon was later assessed by COSEWIC as Special Concern in 2020 and were added to the current listing process. Under SARA, a Special Concern species is defined as species that “may become a threatened or an endangered species because of a combination of biological characteristics and identified threats”. Risks to the Birkenhead Chinook population include fishery exploitation, climate change, and habitat alteration. DU 21 Chinook are threatened by ecosystem modifications and water management, and also experience the highest exploitation rates in British Columbia.

A socio-economic analysis (SEA) has been completed to inform the current SARA listing decision for Birkenhead and DU 21 Chinook. The SEA considers incremental costs and benefits relative to a baseline of activity that accounts for management measures in place, or known to be coming into force, in the absence of the proposed regulation (i.e., without vs. with listing).

Baseline management and economic profiles

The management measures and economic activities that are currently on-going constitute the baseline scenario. Birkenhead Chinook are managed by Fisheries and Oceans Canada (DFO) as part of the Spring 52 population aggregate of Chinook salmon. DU 21 Chinook are managed by DFO as the Lower Strait of Georgia, and part of the Middle Strait of Georgia Chinook population aggregates. Spawning escapement targets and harvest rules are developed annually for these management groups, which are all considered stocks of concern. Current management strategies are detailed in the Southern Salmon Integrated Fisheries Management Plan 2024/2025.

Management scenarios

If Birkenhead or DU 21 Chinook salmon are listed as Special Concern, the SARA prohibitions (for example, prohibitions against killing, harming, and capturing) would not apply. However, listing would result in the development of a SARA management plan for the DUs and their habitats that would include appropriate conservation measures. Regardless of the SARA listing decision, Birkenhead and DU 21 Chinook will continue to receive protection under the Fisheries Act.

Costs of "list" and "do not list" scenarios

Under the "list" management scenario, SARA requires the preparation of a management plan subsequent to listing a species as special concern. The development of this plan would support actions towards public awareness, education and stewardship. SARA general prohibitions that would make it an offence to kill, harm, harass, capture, take, possess, collect, buy, sell or trade an individual of a species do not apply to species listed as special concern. As such, the costs are assumed to be low and likely negligible, although they are unavailable at the time of this report.

Under the "do not list" management scenario, no incremental actions have been identified. Therefore, no costs are expected to result from any actions.

Benefits of "list" and "do not list" scenarios

Under the "list" management scenario, the management plan will include measures for the conservation and opportunities for research. Listing the species would also make it eligible for Species at Risk program funding. If the level of risk to the population were to be reduced as a result of listing the species of Special Concern, there may be some incremental benefits to the species and Canadians resulting from the development and implementation of the plan.

Under the "do not list" management scenario, no incremental actions have been identified. Therefore, no benefits are expected to result from any actions.

Summary

Overall, the incremental costs under the "list" scenario are assumed to be low and likely negligible. Benefits provided through the establishment of a management plan could exceed the monetized costs, provided the recovery objective is achieved.

References

• COSEWIC. 2018. COSEWIC assessment and status report on the Chinook Salmon Oncorhynchus tshawytscha, Designatable Units in Southern British Columbia (Part One – Designatable Units with no or low levels of artificial releases in the last 12 years), in Canada. Committee on the Status of Endangered Wildlife in Canada. Ottawa. xxxi + 283 pp.
• COSEWIC. 2020. COSEWIC assessment and status report on the Chinook Salmon Oncorhynchus tshawytscha, Designatable Units in Southern British Columbia (Part Two - Designatable Units with High Levels of Artificial Releases in the Last 12 Years), in Canada. Committee on the Status of Endangered Wildlife in Canada. Ottawa. xxxv + 203 pp.
• Fisheries and Oceans Canada. 2024. Southern Salmon Integrated Fisheries Management Plan 2024/2025. 23-2367: 628p.