Donald Barry - Fishing for a Solution: Canadas Fisheries Relations With the European Union, 1977-2013

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Fishing
for a Solution

Beyond Boundaries:
Canadian Defence and
Strategic Studies Series

Rob Huebert, Series Editor

ISSN 1716-2645 (Print) ISSN 1925-2919 (Online)

Canadas role in international military and strategic studies ranges from peacebuilding and Arctic sovereignty to unconventional warfare and domestic security. This series provides narratives and analyses of the Canadian military from both an historical and a contemporary perspective.

No. 1 The Generals: The Canadian Armys Senior Commanders in the Second World War J.L. Granatstein

No. 2 Art and Memorial: The Forgotten History of Canadas War Art Laura Brandon

No. 3 In the National Interest: Canadian Foreign Policy and the Department of Foreign Affairs and International Trade, 19092009 Edited by Greg Donaghy & Michael K. Carroll

No. 4 Long Night of the Tankers: Hitlers War Against Caribbean Oil David J. Bercuson and Holger H. Herwig

No. 5 Fishing for a Solution: Canadas Fisheries Relations with the European Union, 19772013 Donald Barry, Bob Applebaum, and Earl Wiseman

2014 Donald Barry, Bob Applebaum, and Earl Wiseman

University of Calgary Press

2500 University Drive NW

Calgary, Alberta

Canada T2N 1N4

www.uofcpress.com

This book is available as an ebook which is licensed under a Creative Commons license. The publisher should be contacted for any commercial use which falls outside the terms of that license.

Library and Archives Canada Cataloguing in Publication

Barry, Donald, 1947, author

Fishing for a solution : Canadas fisheries relations with the European
Union, 19772013 / Donald Barry, Bob Applebaum, and Earl Wiseman.

(Beyond boundaries : Canadian defence and strategic studies series,

ISSN 1716-2645 ; no. 5)

Includes bibliographical references and index.

Issued in print and electronic formats.
ISBN 978-1-55238-778-8 (pbk.).ISBN 978-1-55238-781-8 (epub).
ISBN 978-1-55238-782-5 (mobi).ISBN 978-1-55238-780-1 (pdf)

1. FisheriesNorth Atlantic OceanHistory20th century. 2. Fisheries
North Atlantic OceanHistory21st century. 3. Fishery policyCanada
History20th century. 4. Fishery policyCanadaHistory21st century.
5. Fishery policyEuropean Union countriesHistory20th century. 6. Fishery
policyEuropean Union countriesHistory21st century. 7. CanadaForeign
economic relationsEuropean Union countriesHistory20th century.
8. CanadaForeign economic relationsEuropean Union countriesHistory
21st century. 9. European Union countriesForeign economic relations
CanadaHistory20th century. 10. European Union countriesForeign
economic relationsCanadaHistory21st century. 11. Northwest Atlantic
Fisheries OrganizationHistory. I. Applebaum, Bob, 1940-, author
II. Wiseman, Earl, 1946-, author III. Title. IV. Title: Canadas fisheries
relations with the European Union, 19772013. V. Series: Beyond boundaries
series ; no. 5

SH213.5.B37 2014 639.209163109045 C2014-903514-4
C2014-903515-2

The University of Calgary Press acknowledges the support of the Government of Alberta through the Alberta Media Fund for our publications. We acknowledge the financial support of the Government of Canada through the Canada Book Fund for our publishing activities. We acknowledge the financial support of the Canada Council for the Arts for our publishing program.

This book has been published with support from the Centre for Military and Strategic Studies at the University of Calgary.

Cover design, page design, and typesetting by Melina Cusano

E-book conversion by Human Powered Design

Table of Contents

To the memory of my parents,
and to the other members of my family

(DB)

To the memory of my former Deputy Minister, Peter Meyboom

(BA)

To Karen, Tara, and Brahm
for your love, support, and acceptance
of my many work-related absences

(EW)

Foreword

The buildup of European fisheries in the Northwest Atlantic after World War II resulted in a steady depletion of fish stocks along the Canadian Atlantic seaboard, until by the mid-1970s many stocks were reduced to the point of marginal economic viability for Canadian fisheries. The establishment by Canada of the 200-mile limit on January 1, 1977, promised to reverse this situation.

On extending fisheries jurisdiction, the Canadian authorities established a very conservative management regime inside 200 miles, in some areas against significant domestic opposition, as the 200-mile limit had created high expectations within the fishing industry. For the next five years fisheries statistics and biological data indicated that a slow recovery was taking place.

Meanwhile the European Union (EU) was preoccupied with the development of a Common Fisheries Policy, an extremely difficult challenge made all the more so with the accession of Portugal and Spain to the EU in 1986. This set the stage for aggressive fishing practices and aggressive fisheries negotiations with other coastal states, including Canada.

In these early years of extended fisheries jurisdiction, Canada was preoccupied with rebuilding fish stocks; the EU was preoccupied with finding outlets for its fishing capacity. The stage was set for a confrontation between the restrictive policies of the Canadian authorities and the demands for utilization of fishing capacity by EU member states at a time when fish stocks in the Northwest Atlantic as a whole were fished to their sustainable maxima, and often beyond.

To make matters even more complex, many of the groundfish stocks off Newfoundland and Labrador were distributed on either side of the 200-mile limit on the Grand Banks, and completely outside 200 miles on the Flemish Cap. Some were largely outside 200 miles on the Grand Banks during the spring spawning season. However, EU interest in fishing inside 200 miles remained. Anticipating significant increases in Canadian catches, the Canadian government decided that when such access inside 200 miles was allowed benefits to Canadian industry should be obtained in the form of enhanced access to EU markets. Thus a policy of allocations for access was adopted. It was not successful, either in terms of conservation incentives or access to markets,

This book tells the story, beginning in 1977 and continuing for the next 35 years of Canada-EU fisheries relations. It is a story of successes and failures, good intentions and bad outcomes, simple goals and complex results, and overall not the well-managed fisheries and positive bilateral relationship that was sought. Perhaps the low point occurred in the 1980s when fish stocks had been reduced by adverse environmental conditions, when unusual migration of spawning stocks occurred outside the 200-mile limit, and when Spain and Portugal overfished there to such a large extent that most of the stocks collapsed. In particular, the large Labrador/Northeast Newfoundland cod stock, already stressed because faulty data had led to scientific advice that allowed total allowable catches to be set too high, was essentially destroyed, resulting in the displacement of some 20,000 Newfoundland and Labrador fishers.

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